Land Conversion in Kerala 2026: Nilam to Purayidam, Data Bank Removal, Forms and Fees
Land Conversion in Kerala 2026: Nilam to Purayidam, Data Bank Removal, Forms and Fees
Picture a buyer in Kannur who finds a flat, dry plot near a main road. The seller says it is purayidam and asks for an advance. Two weeks later, the bank’s lawyer asks for the conversion order. There isn’t one, because the village records still call the land nilam.
Cases like this come up across Kerala, from Kasaragod to Kozhikode. Land conversion in Kerala decides whether you can build on a plot, borrow against it and sell it without trouble. This guide explains the data bank, Form 5, Form 6, Form 7 and Form 9, how the conversion fee is worked out, and what to check before you pay any advance.
The rules here reflect what we could verify in November 2026. The government is studying changes to the law, but we found no sign that they have been notified. Treat this as general information, and have your own documents checked before you act.
What Land Conversion in Kerala Actually Means
Land conversion in Kerala, called ‘tharam mattam’ in Malayalam, means changing how the government records classify a plot. The usual change is from nilam (paddy land) to purayidam (dry or garden land).
The classification is more than a label. It decides whether the local body will approve your building plan, whether a bank will lend against the plot, and how easily you can resell it. Filling a field with soil does not change the record. Planting coconut trees does not change it either.
The law behind all this is the Kerala Conservation of Paddy Land and Wetland Act, 2008. It came into force on 12 August 2008. Since that date, paddy land can be converted or reclaimed only in the ways the Act allows.
That is why the records come first in any land purchase, before the price, the advance or the agreement. A plot that looks like a house site on the ground can still be paddy land on paper.
Nilam, Purayidam and Data Bank Land: What Is the Difference?
Three terms cause most of the confusion. They are not three names for the same thing.
| Term | Where it appears | What it means for you |
| Nilam | Basic Tax Register (BTR) at the village office | Recorded as paddy land. Conversion rules apply. |
| Purayidam | Basic Tax Register | Recorded as dry or garden land. Usually no conversion is needed, but a building permit is still required. |
| Data bank land | Village-wise list kept by the Local Level Monitoring Committee | Listed as paddy land or wetland under the Act. The strictest rules apply. |
The data bank is a list of paddy land and wetland prepared under Section 5(4) of the Act. Each panchayat, municipality and corporation has one, with survey numbers and extents. Because it was prepared largely from satellite maps, some garden land and homesteads were listed by mistake.
Then there is unnotified land. This is land that the BTR calls Nilam, but the data bank does not list it. It has its own route, covered under Form 6 and Form 7 below.
The Act defines paddy land as land where paddy is grown at least once a year or land suitable for paddy that is left fallow. So an empty field does not stop being paddy land just because nobody is farming it.
Two questions point you to the right route. Is the plot in the data bank? And what does the BTR say? If the data bank lists your land wrongly, you need Form 5. If the land is outside the data bank but the BTR says nilam, you need Form 6 or Form 7.
Form 5 Application in Kerala: How to Remove Land From the Data Bank
Start with what Form 5 is for. It does not give permission to build, and it does not change the land to purayidam in the records. It asks the Revenue Divisional Officer (RDO) to correct the data bank because your land was listed by mistake. If the RDO finds that the land was not paddy land or wetland, the entry is treated as removed.
Who applies? The owner of land that the data bank lists wrongly. The application goes to the RDO (in some divisions, the Sub Collector) under Rule 4(4d) of the Kerala Conservation of Paddy Land and Wetland Rules, 2008. A 2018 amendment, effective from 30 December 2017, gave owners this right and asked the RDO to decide within three months. Many files take longer.
The RDO usually asks the agricultural officer and the village officer for reports. The officer can also inspect the land or ask for satellite pictures from the Kerala State Remote Sensing and Environment Centre. The question is what the land was around 12 August 2008, not only how it looks today. In a May 2025 judgment, the Kerala High Court repeated that the test is the nature, lie, character and fitness of the land for paddy. A June 2025 judgment noted that Form 5 and Form 6 applications are judged on different parameters.
Sometimes the data bank itself describes a plot as converted land. Even then, a 2022 High Court case records officials insisting on a Form 5 before they would treat the entry as removed. So a “converted” remark in the data bank is not a shortcut.
Removal from the data bank is only the first step. If the records still show Nilam, you then need Form 6 or Form 7 for permission to use the land. Exclusion from the data bank and permission for land use are two separate approvals.
If the land really is paddy land, Form 5 cannot help. The Act has one narrow route for an owner’s own house: Form 1, filed with the Local Level Monitoring Committee and decided by the District Level Authorised Committee. It covers up to 2.02 ares (5 cents) in a municipality or corporation and 4.04 ares (10 cents) in a panchayat, with conditions. News reports say a Full Bench ruling bars people who bought paddy land after the Act came into force from using this route.
Form 6 Land Conversion vs Form 7: Which One Applies to Your Plot?
Form 6 and Form 7 ask for permission to change the use of unnotified land under Section 27A of the Act. Since 30 December 2017, the RDO’s permission is needed for this. The form depends on the size of the plot.
| Form 6 | Form 7 | |
| Plot size | Up to 20.23 acres (about 50 cents) | Above 20.23 acres |
| Land type | Unnotified land | Unnotified land |
| Extra condition | None beyond the usual papers | 10% of the land is set apart for water conservation and marked on the sketch |
| Application fee | ₹1,000 | ₹1,000 |
| Filed with | RDO | RDO |
Here is what happens after you file. The RDO sends the application to the Village Officer, who inspects the land and reports on its nature, its fair value, any water channels and the effect on nearby paddy fields. For Form 7, the Agricultural Officer also reports. If the RDO is satisfied, the office approves the conversion and sends a notice to pay the fee. The final order follows once the fee is paid.
Order matters when both forms are involved. In one case, the High Court noted that a Form 7 application could not be decided until the Form 5 applications on the same land were decided.
Small houses have a separate rule. An owner who held unnotified land on 30 December 2017 can build, once, a residential building of up to 120 square metres on not more than 4.04 ares (10 cents), or a commercial building of up to 40 square metres on not more than 2.02 ares (5 cents), without the RDO’s permission.
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Form 9 and Free Conversion for Land Changed Before 4 July 1967
Some land stopped being paddy land long before any of these laws. Land that was filled or turned into dry land naturally before 4 July 1967 can be converted without a fee if the owner can prove it. A change made before that date falls outside both the Kerala Land Utilisation Order, 1967, and the 2008 Act. You still need the RDO’s permission under Section 27A to get the records corrected.
News reports from March 2022 call the application for this free route Form 9. We could not find the form on an official page, so ask the RDO’s office to confirm the form number before you file.
Proof is the hard part. The RDO can accept old papers that describe the land as dry land, such as a sale deed, a mortgage deed or a licence issued by a government agency. The RDO may also ask for a report on the age of the trees on the plot or for satellite records.
Eligibility is never automatic. A deed from 1990 that says “garden land” does not prove what the land was in 1967. If the evidence is thin, expect questions. Collect as many dated papers as you can before you apply.
Paddy Land Conversion Fee in Kerala 2026: How It Is Worked Out
The conversion fee is the biggest cost for most owners, so it helps to see the formula. The fee depends on three things: the fair value of the land, the slab your plot falls in, and the size of your holding.
At present, the village officer reports the fair value of the nearest comparable purayidam, not the lower value of the paddy land itself. The fee is a percentage of that fair value.
| Size of holding | Conversion fee |
| Up to 25 cents | Nil, if the holding was 25 cents or less on 30 December 2017 |
| Above 25 cents, up to 1 acre | 10% of the fair value of the whole extent |
| Above 1 acre | 20% of the fair value of the whole extent (reported by legal sources; confirm with the RDO) |
| Converted before 4 July 1967 | Nil, with proof |
The fee is a government charge. It is separate from the ₹1,000 application fee, and it is demanded only after the RDO approves the conversion. Fees charged by advocates, consultants, surveyors or for satellite reports are professional costs. They vary, so ask for a written quote.
Now a worked example. This uses an assumed fair value of ₹50,000 per cent. The figure is for illustration only. Your real fair value will differ by village and plot, so take it from the village officer’s report.
| Extent | Calculation | Fee |
| 15 cents | 15 is not above 25 cents, so no fee | ₹0 |
| 25 cents | 25 is not above 25 cents, so no fee. | ₹0 |
| 30 cents | 30 × ₹50,000 = ₹15,00,000. Then 10% of ₹15,00,000 | ₹1,50,000 |
| 40 cents | 40 × ₹50,000 = ₹20,00,000. Then 10% of ₹20,00,000 | ₹2,00,000 |
The free rows assume the whole holding was 25 cents or less on 30 December 2017.
Look at the 30-cent row. Many owners expect to pay only on the extra 5 cents: 5 × ₹50,000 = ₹2,50,000, and 10% of that is ₹25,000. That is wrong. Since February 2025, the fee has applied to all 30 cents, so the true figure is ₹1,50,000.
One more point about 2026. News reports say the government is considering changing the law so that the fee is based on the paddy land’s own fair value, with a six-month limit for decisions. That would likely lower the fee. It is a proposal, not the law today.
The 25-Cent Rule Explained
The 25-cent rule comes from a government notification dated 25 February 2021. Land of 25 cents or less (about 10.12 ares) can be considered for a change of category with no conversion fee. Above 25 cents, the fee is 10 per cent of the fair value.
For a while, many people read this to mean the first 25 cents were always free. In State of Kerala v. Moushmi Ann Jacob (2025 INSC 255), decided on 20 February 2025, the Supreme Court rejected that reading. It held that once a holding is above 25 cents, the fee is charged on the whole extent.
So who may qualify for the exemption? Owners whose total holding is 25 cents or less. Who pays? Anyone above that size, on every cent. Plots divided from a larger holding after 30 December 2017 are generally not treated as separate small holdings, so splitting land later is not a way around the fee.
The rule is about the fee only. It does not decide whether conversion is allowed. The RDO can still refuse an application if the land is found to be paddy land, even when the plot is small.
Documents Needed for Nilam to Purayidam Conversion
The Revenue Department’s procedure, as reported for Form 6, lists these documents. The RDO’s office may ask for more.
- Receipt for the ₹1,000 application fee
- Latest land tax receipt
- Copy of the title deed
- A sketch of the plot prepared by the village officer or a licensed surveyor
- A certificate from the Agricultural Officer that the land is not in the data bank
- The building plan, if you plan to build
- For free conversion, an affidavit on ₹50 stamp paper that the land did not exceed 25 cents before 30 December 2017
These are often requested as well, depending on the case: a possession certificate and any earlier RDO order on the same land.
A Form 5 file works differently. It depends on evidence of what the land was in 2008, such as older deeds that call it garden land, building tax receipts for an old house, and dated photographs of mature trees. Land converted before 1967 needs the old papers described above.
Check one thing before you file anything. The survey numbers in the deed, tax receipt, sketch and application must match, including old and resurvey numbers. Mismatched numbers are among the most common reasons a file is returned.
Where and How to Apply for Land Conversion in Kerala
Applications for Form 6 and Form 7 go to the RDO’s office. They can be filed online through the Revenue eServices portal using Citizen Login, or at an Akshaya centre. The portal lets you track an application using its application number.
After filing, the village officer inspects the land. The RDO may also ask for satellite images. Three outcomes are possible: approval followed by a fee notice, rejection with reasons, or a request for more documents.
After the final order, the Tahsildar forwards it to the Village Officer, who changes the land’s classification in the records. Do not stop at the order. Get certified copies, and check that the BTR and tax receipt now show the new class before you apply for a building permit, a loan or a sale.
If the RDO rejects a Form 6 or Form 7 application, an appeal to the District Collector under Section 27B is reported to be possible within 30 days of receiving the order. Confirm the time limit with a lawyer before relying on it.
How Long Does Land Conversion Take?
Nobody can promise a fixed timeline. A number quoted by an agent is a guess. What we can explain is what causes delay.
Incomplete files wait for clarification or get returned. Field inspections by the village officer take time, and Form 7 and Form 5 files often need the agricultural officer too. Satellite reports, objections from neighbours and heavy workloads in areas with a lot of nilam add more waiting. The law asks the RDO to decide a Form 5 application within three months, but many files take longer. News reports in 2026 mention delays of up to two years on conversion applications, which is why a six-month limit is being discussed.
You can follow up in four ways:
- Keep the acknowledgement and track the application number on the portal.
- Send a written reminder to the RDO and keep proof that it was received.
- Ask the Village Office whether its report has been sent.
- If nothing moves, ask a lawyer about a writ petition in the High Court seeking a decision within a fixed time.
Why Land Conversion Applications Get Rejected
Most rejections trace back to a small set of causes:
- The wrong form, such as Form 6 for land still in the data bank
- Survey numbers that do not match across documents
- Missing proof, such as no evidence of the land’s condition in 2008
- Incomplete papers
- Land found suitable for paddy cultivation
- Legal restrictions, such as land filled after the Act came into force
The last two deserve a closer look. The High Court has stressed that officers must assess whether land is really suitable for paddy, with a proper inspection and a fair look at the evidence. An order that only repeats an officer’s report or treats land as paddy land because it is fallow or low-lying today can be set aside. A rejection can still stand when the evidence supports it.
There is also a risk to know about. If an inspection finds that the land is paddy land and the application is rejected, the RDO can recommend that the Local Level Monitoring Committee consider adding the land to the data bank. File only when your evidence is ready.
The remedy depends on the form. Form 6 and Form 7 orders can be appealed, and a Form 5 rejection is usually challenged by a writ petition. Take legal advice before choosing.
What to Check Before Paying an Advance on Kerala Land
A small check now can prevent a very expensive problem later. Before you pay anything, go through this list:
- Ask the village office or local body whether the survey number is in the data bank.
- Read the BTR entry. If it says nilam, ask for the conversion order.
- Match the survey numbers in the deed, tax receipt and sketch, including old and resurvey numbers.
- If the seller says the land is converted, ask for a certified copy of the RDO’s order and confirm that the records now show purayidam.
- Find out whether the plot was part of a larger holding in December 2017. If the holding is above 25 cents, budget for the fee on the whole extent.
- Look for signs of recent filling, such as fresh soil, levelled ground or neighbours who still farm.
- Get every promise in writing. A verbal assurance has no value if the records say otherwise.
Data bank land can be sold and the deed can be registered, but the buyer takes the same restrictions. Banks and local bodies check these records, so a plot that fails the check can be hard to finance or build on.
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Frequently Asked Questions About Land Conversion in Kerala
How can I convert Nilam to Purayidam in Kerala?
First check whether the land is in the data bank. If it is listed by mistake, file Form 5 with the RDO. If it is outside the data bank but the BTR says nilam, file Form 6 (up to 20.23 ares) or Form 7 (above that). After the order and any fee, the village officer updates the records.
How can I remove land from the Kerala data bank?
File a Form 5 application with the RDO. Support it with proof of what the land was around August 2008, such as old deeds, building tax receipts and tree records. Removal works only for land that was listed by mistake.
What is the difference between Form 5 and Form 6?
Form 5 asks the RDO to correct the data bank. Form 6 asks for permission to change the use of land that is outside the data bank, up to about 50 cents. They are judged on different parameters.
What is Form 7 used for?
Form 7 is for unnotified land above 20.23 ares (about 50 cents). The application must set apart 10% of the land for water conservation and show it on the sketch.
Is land conversion free in Kerala?
Only up to 25 cents, if the whole holding was that size on 30 December 2017. Above 25 cents, the fee is 10% of the fair value on the whole extent. The ₹1,000 application fee applies either way.
What is the 25-cent rule?
Land of 25 cents or less (about 10.12 ares) pays no conversion fee. Since the Supreme Court’s February 2025 ruling, a holding above 25 cents pays on every cent, not just the excess.
Can I build a house on converted paddy land?
Yes, once the RDO’s order is issued, the fee is paid and the records are updated. You still need the local body’s building permit because the order changes the land’s recorded use and does not approve a building. Some small houses on unnotified land are exempt, as explained above.
How can I check whether land is included in the data bank?
Ask at the village office or the local body office, where the data bank is exhibited. Carry the survey number. Some local bodies publish it online. Also read the BTR entry, because nilam outside the data bank can still need permission.
Can an NRI apply for land conversion?
Living abroad does not by itself stop an owner from applying. Many NRIs act through a power of attorney. Have it drafted and attested correctly, and ask a lawyer to review it.
Check the Records First, Then Choose the Form
Three points matter most. Check the data bank and the BTR before you pay anything. Match the form to the land: Form 5 for wrongly listed land, Form 6 or Form 7 for unnotified land. And budget for the fee on the whole extent if the holding is above 25 cents.
If you are buying or owning land in Kerala and are not sure how it is classified, Takees Estates offers documentation consulting. We can help you read the records, spot gaps before you pay, and understand which application fits your plot. Visit Takees Estates or [contact us](CTA URL needed) to start.
Approval is decided by the revenue authorities, and no one can promise an outcome. This article is general information, not legal advice. Land records vary from plot to plot, so confirm your own case with a qualified Kerala property lawyer.
