Bombay High Court
Kishore H. Desai vs Lilawati Virji Chheda And Ors. on 11 December, 1989
Equivalent citations: 1990(1)BOMCR160
JUDGMENT H. Suresh, J.
1. Whether a commission for local investigation under Order 26, Rule 9 of the Code of Civil procedure can be issued ex parte? If so, whether the commission can be executed without notice to both the parties ? Is the report of the Commissioner, in such a case, receivable in evidence? Whether the rules relating to Caveat under section 148-A of the Code of civil Procedure apply to the issuance of any commission ? These are the questions which require to be determined in this civil revision application.
2. Now to certain minimum facts. In fact, the litigation between the parties and the way it has multiplied reminds one of what Lord Simon once said: "The bitter waters would never ebb", Re Ampthill Pearage case, (1976) 2 All E.R. 411, (at P 438). So much so, Mr. Dave informs me that the petitioners have been filing their caveats once in three months in all the three Courts, the Small Causes Court, the Bombay City Civil Court and the High Court for the last few years. It all began in October 1981 when the landlord (the deceased father of respondent Nos. 1 to 5) filed a suit as against the tenant (deceased father of petitioner No. 1) being R.A.E. Suit No. 1317/4317 of 1981, on the ground of non-user of the suit premises for a period of six months or more, and on the ground of the tenant having acquired a suitable premises elsewhere. On April 25, 1982, the decree was executed in the absence of the tenant. On June, 27, 1982, the petitioner as also two others were arrested at the instance of the landlord on the allegation of house breaking and other charges. On March 21, 1983, the accused were discharged by the learned Magistrate. In the meanwhile the tenant made an application for setting aside the ex-parte, and for restoration of the possession. On April 21, 1983, the appellate Bench of the Small Causes Court at Bombay, set aside the ex parte decree and passed an order for restoration of possession. As against this, the landlord filed a writ petition which came to be dismissed by this court on June 14, 1983. A.S.L.P. was filed in the Supreme Court which was also rejected. The Supreme Court granted four months time to the landlord subject to his filing an undertaking which was to be filed within six weeks, to vacate and handover the possession back to the tenant. The undertaking was not filed. When the order for restoration of possession was sought to be executed certain obstructions came on the scene. This led to a contempt petition in the High court. By an order dated September 16, 1983, possession was ordered to be restored to the tenant. Possession was accordingly restored on September 24, 1983. On October 24, 1983, the tenant filed an application, for mesne profits and damages, which is still pending in that Court.
3. In the meanwhile the landlord filed a second suit as against the tenant on January 30, 1984 being R.A.E. Suit No. 83/311 of 1984, on the ground of arrears of rent. On February 19, 1985, the plaintiff again obtained an ex-parte decree and the decree was sought to be executed on June 11, 1985. On June 19, 1985, an application was made for setting aside the ex-parte decree and it appears that application is pending.
4. On November 20, 1984, the landlord filed the third suit being R.A.E. Suit No. 1462/4833 of 1984 for his own bona fide reasonable occupation under section 13(1)(g) of the Bombay Rents, Hotel and Lodging House Rates Control Act, 1947. (hereinafter referred to as "the Bombay Rent Act"). During the pendency of the said suit, the original defendant died on September 30, 1985. Later on December 4, 1986 the original plaintiff also died. In the meanwhile the present petitioner as also two others, who were prosecuted earlier as mentioned above, filed three suits in this High Court being Suit Nos. 829 of 1984, 830 of 1984 and 831 of 1984, for malicious prosecution, claiming damages as against the landlord and his heirs and legal representatives. The suits are pending in this Court.
5. On January 22, 1987, the petitioner had filed a caveat bearing No. 71 of 1987 in the Small Causes Court. On January 28, 1987, the caveat was sent by the registered post to the plaintiff. It appears that till February 2, 1987, the registered packet was sought to be delivered by the postman, but the same not accepted. On January 31, 1987, an application was made on behalf of respondent Nos. 1 to 5 for issuance of commission which led to the present proceedings before me. On February 2, 1987, the order was obtained ex parte and an advocate was appointed as the Commissioner. The commission was for the purpose of visiting the suit premises and to make a report about its condition. The allegation were that defendant No. 1 is a bachelor and that he was not residing in the suit premises and that the suit premises were locked and were lying vacant. The application further stated that the above facts could be verified if a Commissioner was appointed by the Court.
6. It appears that present respondent No. 5 collected the caveat from the post office on February 3, 1987. Between February 5, 1987 and February 20, 1987 the Commissioner paid nearly twelve visits to the suit premises at different hours. In between on February 9, 1987 the plaintiff's advocate wrote a letter to the Commissioner to allow the plaintiff to take photographs and also to pay visits after sun set and before sun-rise. On February 12, 1987, the Commissioner made an application to the Court seeking directions with regard to photography, and also with regard to the visits to the suit premises after sun-set and before sun-rise. The Court granted permission to the Commissioner to take photographs of the suit premises, but did not pass any order on the prayer for visiting the suit premises after sun-set and before sun-rise. Again, this was an ex-parte order. On February 23, 1987, the Commissioner filed his report in the Court on February 20, 1987, after all the visits of the Commissioner were over and after seventeen days of the receipt of the caveat the plaintiffs brought to the notice of the Court the caveat filed on behalf of the petitioner and prayed for seeking service of the notice the caveator's attorney. That is how the notice was served on the petitioner (being interim Notice No. 855 of 1987) much after the commission was executed. Thereupon, petitioner No. 1 filed his affidavit-in-reply dated March 18, 1987. He objected to the issuance of the commission ex parte. He also pointed out that the caveat having been filed and the parties having been served with the caveat, no ex parte order for appointment of Commissioner could have been obtained. He also pointed out that the parties have been litigating and there were number of applications and proceedings pending and that the parties have been represented by the Advocates and that it was unfair on the part of the plaintiffs to obtain an ex parte order. He also pointed out that in any event the commission could not have been executed without notice to the petitioner and the other defendants. He, therefore, submitted that the ex parte order dated February 2, 1987, appointing the said Commissioner, and the report of the Commissioner be treated as null and void and be struck down and expugned from the record.
7. Thereafter the petitioner took out interim notice No. 2255 of 1987 on April 1, 1987, and also another interim notice No. 3854 of 1987 on April 27, 1987. In the first notice the petitioner prayed for appointment of a Commissioner to carry out measurements and plans in respect of the premises in occupation of the plaintiffs, and also for permitting the petitioner and the defendants to take photographs of the various premises and also for taking measurements. In the second notice the petitioner and the defendants prayed for examining the Commissionner and plaintiff No. 5 and also for depositing all the photographs taken pursuant to the order dated February 12, 1983 in interim notice No. 855 of 1987 for appointment of Commissioner to make inspection of the suit premises and to make report thereof.
8. The learned Judge disposed of all the three notices by an order dated August 5, 1988. As regards interim notice No. 855 of 1987, he came to the conclusion that since the Commissioner was appointed and had submitted his report the notice would not survive, and the prayer for expedition of the hearing of the suit was dropped. In interim notice No. 2255 of 1987, the notice was partly made absolute and partly discharged. The advocate suggested by parties in consultation with each other was to be appointed as commissioner for visiting the various premises and to take measurements interim notice No. 3054 of 1987 was discharged. But the learned Judge observed that the plaintiffs have already produced the photographs together with negatives and, therefore, the notice did not survive. It is against this order that the present revision application was filed.
9. Mr. Dave submitted that no ex-parte commission could have been issued under the law. He also submitted, that in any event the commission could not have been executed without the notice to the parties. Since the commission has been issued and executed in contravention of the law the report cannot be taken on record and the same should be treated as null and void. He also further stated that since the petitioner had filed a caveat the order could not have been passed, without notice to the petitioner and it is on that ground also the order and consequently the report will have to be vacated.
10. Before 1 deal with the rival contentions it is necessary to set out the following provisions.
"Order 26, Rule 9.---In any suit in which the Court deems a local investigation to be requisite or proper for the purpose of eluciating any matter indispute, or of ascertaining the market value of any property, or the amount of any mesne profits or damages or annual net profits, the Court may issue a commission to such person as it thinks fit directing him to make such investigation and to report thereon to the Court.
Order 26, Rule 10 .---(1) The Commissioner, after such local inspection as he deems necessary and after reducing to writing the evidence taken by him shall return such evidence, together with his report in writing signed by him to the Court.
(2) The report of the Commissioner and the evidence taken by him (but not the evidence without the report) shall be evidence in the suit and shall form part of the record; but the court or with the permission of the Court, any of the parties to the suit may examine the Commissioner personally in open Court touching any of the matters referred to him or mentioned in his report, or as to his report, or as to the manner in which he has made the investigation.
(3) Where the Court is for any reason dis-satisfied with the proceedings of the Commissioner, it may direct such further inquiry to be made as it shall think fit.
Order 26, Rule 18.---(1) Where a commission is issued under this Order, the Court shall direct that the parties to the suit shall appear before the Commissioner in person or by their agents or pleaders.
(2) Where all or any of the parties do not so appear, the Commissioner may proceed in their absence If, therefore, one considers the above provisions, it appears that Order 26, Rule 9 is silent as to whether a commission can be issued without notice. But if one considers the provisions of Order 26, Rule 18, it says that if a commission is issued, the Court shall direct the parties to the suit to appear before the Commissioner in person or by their agents or pleaders. Normally, when there is no direction by the Court to appear before the Commissioner, the Commissioner himself should issue notice, and such notice can be considered as sufficient compliance of this rule.
11. Mr. Dave relied upon the observations made by Cornish, J. in the case of Latchan v. Rama Krishna, A.I.R. 1934 Madras 548. The relevant observations are as follows "The whole thing was done behind their backs. It must be remembered that R. 10(2), O. 26 Civil P.C., makes the report of the Commissioner evidence in the suit. Therefore it is of importance that the report should not be founded on representations made to the Commissioners, or on matters brought to his notice, by one party to the suit alone. Indeed it is so manifestly improper that one party to a suit should be given a commission and the advantage of a report by the Commissioner without the knowledge of the opposite party that I think this alone would be sufficient to justify the interference of a Revision Court. But there is R. 18, O. 26 which says that when a commission is issued under this order the Court shall direct that the parties shall appear before the Commissioner in person or by their agents or pleaders. Sub-Rule (2), R. 18 says that where all or any of the parties do not so appear the Commissioner may proceed in their absence. R. 18 is mandatory, and is intended to ensure that the parties have notice of the appointment of the Commissioner and that they must attend his investigation. There is no power in the Court to issue an ex-parte commission."
12. But I think the real emphasis is on the question whether the Commissioner should be allowed to execute the commission without notice to both the parties. In fact this part of the observations has been dissented by the same Court in the case of In re P. Moosa Kutty, where there is the other extreme observation which says that the appointment of a Commissioner without notice to either party and making a report without notice is not illegal and it is not opposed to the provisions of Order 26, Rule 18. The learned Judge observes as follows :
"This issue of commission can be made 'ex parte' and in fact it stands to common sense has often got to be made 'ex parte'. It will be borne in mind that this application has been fixed along with the plaint and before the issue of suit summons. This application is made on account of urgency. If a commission is not going to be issued until the defendant appears, most often there will be no point in taking out a commission because the object of the commission itself would be lost and incriminating circumstances would be obliterated. The appointment of a commissioner for local investigation in such cases would be an instance of locking the stable door after the horse had been stolen."
However, the learned Judge himself further observes that it is a matter of discretion of the Court. But there are two important facts. Firstly the application was made before the issue of summons, and therefore, as good as on order for inspection within the meaning of Order 39, Rule 7. Secondly when the Commissioner made the report there was notice to either side.
13. This question, as to whether an ex parte commission should be issued without notice to the other party is no longer res integra inasmuch as the Supreme Court in the case of "Smt. Rajbir Kaur & another v. M/s. S Chokasiri & Co., 1988(2) All India Rent Control Journal, 316 has concluded the same. The relevant observations of the Supreme Court are as follows :
"The High Court was of the view that the preceding of the Commissioner was vitiated by the absence of a notice to the respondent preceding the order appointing the commissioner. It is true that some High Courts has taken the view that no order appointing a local Commissioner under Order 26 C.P.C. could be passed ex parte. See Latchan Naidu and another v. Rama Krishna Ranga Rao Bahadur Samasthanam. But subsequent pronouncements of several High Courts, including the Madras High Court, have inclined to the better view that there might be circumstances which may necessitate and justify even an ex parte Order appointing a Commissioner. But the requirements of Rule 9 of Order 26 are construed to apply to a stage after the making of an order appointing the Commissioner. In the present case, it is no doubt true, that the order dated 3-2-1975 of the trial Court appointing a Commissioner did not in terms direct the parties to appear before the Commissioner. There is this infirmity in the proceedings of the Commissioner."
In my view these observations at once answer both the queries formulated above. Firstly, the Court has discretion to pass an ex parte order appointing commissioner under Order 26, Rule 9. But, before the Commissioner executes the commission it is necessary that the parties should be directed to appear before the commissioner either by the Court or by the Commissioner himself.
14. Mr. Hattangadi relied upon the case of "Totaram v. Dattu, A.I.R. (30) 1943 Bombay 14. The Division Bench of this Court had not only allowed an ex parte commission but has also allowed execution of the commission, ex parte, which involved taking out certain ornaments buried on the defendants land. But I think this case will have no application inasmuch as the application was not under Order 26, Rule 9 but under Order 39, Rule 7, the object of which is different from the object appointing commissioner under Order 26, Rule 9. Under Order 39, Rule 7, it is open to the Court to grant an ex parte order by way of an inter-locutory order for the purpose of preserving the property or for maintaining the status quo between the parties. The order is not by way of investigation as contemplated under Order 26, Rule 9, nor is there any question of tendering such report as evidence as provided under Order 26, Rule 10. Mr. Hattangadi drew my attention to the judgment of S.K. Desai, J., in the case of "Dr. C.T. Chudger v. M/s. A.A.A. of India & another, 1988 (1) All India Rent Control Journal, 532. In that case Small Causes Court had refused to issue a commission in a suit under section 13(1)(g) of the Bombay Rent Act. The learned Judge in that context observed that since the Court has always to consider the question of relative hardship, the fact of user or non-user or improper user or keeping the premises locked up or user there of for the purpose of storage will and must assume importance. It was, therefore, necessary, in order to help the Court to reach a proper conclusion at the time of the trial, to issue a commission as otherwise very vital evidence which would have bearing on the ultimate question to be decided by the Court would be lost. The learned Judge, therefore, regretted that such a commission was not issued and the High Court accordingly directed that a commission be issued. I cannot understand as to how this case can help Mr. Hattangadi. It is true that a commission is issued for variety of purposes. But the question is whether the commission can be executed ex parte without notice to the other party. It is interesting to note that the learned Judge while granting the issuance of the commission directed that there should not be undue delay in visiting the premises and till the report is made by he commissioner, status quo should be maintained and accordingly the requisite injunction was ordered to be continued in that behalf. Therefore, it is possible, in a given case, the Court while appointing Commissioner ex parte may also direct that the party should maintain the status quo till the commission is executed and the report is received. In that event, the Court or the Commissioner can easily issue a suitable notice, may be of a very short duration and proceed with the execution of the commission, thereafter.
15. Mr. Hattangadi submitted that if notice is to be issued to the opposite party before or after the appointment of local commissioner for inspection of the spot, the very purpose may be frustrated particularly in cases like the one before me. He submitted, if notices were not to be given in a case like this, no prejudice will be caused to the tenant inasmuch as the tenant is supposed to be in possession of the premises and whatever be the state of affairs at the given moment, would be judged or seen by the local Commissioner. In this behalf Mr. Hattangadi relied on certain cases of Punjab & Haryana High Court viz., Mahabir Parshad Verma v. Dr. Surinder Kaur, 1979(1) All India Rent Control Journal, Punjab & Haryana, 9; Inder Kumar Jain v. Durga Dass and anr., 1981(1) All India Rent Control Journal, Punjab & Haryana, 450 and Hukumchand v. The Financial Commr. Chandigarh & ors., 1985(1) All India Rent Control Journal, Punjab & Haryana, 193. All these cases are under the local Rent Restriction Act and the High Court had overruled the objection taken by the tenant as regards the ex parte appointment of Commissioner or execution of the commission ex parte.
16. Mr. Dave has also drawn my attention to the case of Maroli Achuthan v. Kunhipathumma, which is decided by a Division Bench, wherein the Court did not allow the report of the Commissioner executed ex-parte as evidenced under Order 26, Rule 10 sub-rule (2). The Court held that while the commissioner can be appointed under Order 29, Rule 9, without issue of notice is a must under Order 26, Rule 18 at the time of investigation and the relevant observations are as follow :
"The Principle behind Order 26, Rule 18 is obvious. Order 26, Rule 10(1) authorises the Commissioner to take evidence regarding those matters which he is competent to investigate and reduce the same to writing and file the same along with his report. It is a principle of natural justice that it is only evidence taken in the presence of a party that could be used against him. It is for this reason that Order 26, Rule 18 contemplates an opportunity to be given to the parties to be present before the Commissioner in the property at the time of investigation. In Ramakka v. Negasam Venkatasubba Rao, J., said this :---
"The contention that the Commissioner was not justified in obtaining information in the absence of the parties must be upheld. The Court is not entitled to act on information received in the absence of the parties, nor can it base its judgment on its own knowledge of the facts. The law on this subject is well settled Lord Langdale M.R., observes in Harvey v. Shelton, (1844)7 Beav., 455: 49 E.R. 1141--
"In every case in which matters are litigated, you must attend to the representation made on both sides, and you must not, in the administration of justice, in whatever forum, whether in the regularly constituted Courts or in arbitrations, whether before lawyers or merchants, permit one side to use means of influencing the conduct and the decision of the Judge, which means are not known to the other side."
(10) Even apart from the principles underlying Order 26, Rule 18 the said provision also is imperative in nature. The presence of the parties is considered imperative by the very provision contained. In Order 26, Rule 18, C.P.C."
Consequently non-observance of the provision contained in Order 26, Rule 18 will not justify reception of the report as part of the evidence under Order 26, Rule 10 sub-rule (2) of the Code of Civil Procedure.
17. In the case of M. Shivarama v. Mahabala Bhatt, A.I.R. 1976 Mysore 45 what happened was that the Commissioner issued notice under Order 26, Rule 18 to the defendants our of the three in that context the Court observed as follows :
"It is correct to say that the crux of the matter is that under Rule 10(2) of Order 26 a Commissioner's report is made evidence available in the suit concerned. Now, a Commissioner is not required to be placed under on oath or to work under an oath as a witness is always required to do. Nevertheless, a report made by him is elevated to the position of evidence tendered on oath in open Court. It is a departure from the normal rule of taking evidence. Hence, the interpretation to be placed on such as legal provision making a definite departure from the normal rule is that before effect could be given to that special provision, every condition or every detail of the procedure prescribed by the law for the preparation of such a report should be strictly complied with."
The Court, therefore, observed that the report prepared by the Commissioner cannot be considered as evidence under rule 10 sub-rule (2) of Order 26, in so far as it relates to the other defendant, who has not been served by the notice as required under Order 26, Rule 18. In this case, the Court also observed that the Court has power to make ex parte order issuing commission. Both, the Andhra Pradesh High Court in the case of Y. Sambaiah v. J. Basavapurna, and the Calcutta High Court in the case of Jaiswal Coal Co. v. Fatehganj Co-op. H. Society, have held that the Court does have a power to make an ex parte order issuing commission.
18. Thus, by and large, it is clear that the Court has power to issue commission under Order 26, Rule 9 without notice to other side. But on the question of execution of the commission, it appears that the consensus is that such a notice has to be issued to both the parties before proceeding with the execution of the commission Mr. Hattangadi, however, pointed out that the Orissa High Court in the case of Natbar Behara v. Batakrishna Das, has taken a different view. The Court has observed that the provisions of Order 26, Rule 18 cannot be held to be mandatory so far as scientific investigation contemplated in Rule 10-A is concerned. In that context the Court explained that the purpose of a notice to parties under rule 18 is to give them an opportunity to make representation of their respective cases before the Commissioner or else the Commissioner will proceed ex parte in the matter of recording evidence or in making local investigations etc. In a matter of scientific investigation or for performance of ministerial act, the parties are not required to make representation of their respective cases nor the Commissioner is required to consider such representation if made before him. It appears, in that case, that the parties also had made representations that the Court could appoint a Commissioner on its own and for that reason the Court has observed that the parties by agreement wanted the Court to issue a commission without any notice to them. It was in that context the Court further observed that in the facts and circumstances of that case the report of the Commissioner cannot be held to be inadmissible in evidence for want of notice under Order 26, Rule 18 of the Code. Broadly, the view taken by the Orissa High Court appears to be that in matters of scientific investigation or in matters where the Commissioner has to do ministerial acts and report thereon or in matters where the parties have no function to play before the Commissioner, a notice under Order 26, Rule 18 may not be necessary. Same appears to be the view in two Kerala cases viz. Hydru v. Govindankutty, . There the question was one relating to report of an handwriting expert. The other case is of P. Subramaniam v. K.S.E. Board. . Here also a technically qualified Commissioner was appointed after replacing an earlier Commissioner who had filed a report which was not satisfactory. Mr. Dave points out that it appears that the electrical Inspector appears to have given notice to be parties, as in para 2 of the report there is a mention that some of the documents were not produced before the Commissioner despite notice.
19. On the question as to the validity of the report made without notice to the parties the Courts have taken slightly differing views. The Madras High Court in the case of In re : P. Moosa Kutty, (supra) has observed that just because there was no notice when the commissioner was appointed under Order 26, Rule 9, for that reason, the commissioners report cannot be discarded. The Delhi High Court, on the other hand, in the case of Jamil Ahmed Taben & ors. v. Mst. Khair-ul Nisa and others, 1970 All India Rent Control Journal, 695 has observed that the provisions of Order 26, rule 18 are mandatory and the report resulting from inspection done without complying with the said provisions cannot be read as evidence. However, the commissioner can be examined, not as the commissioner, but as an ordinary witness and the report then can be used as a piece of corroborating evidence under section 157 of the Evidence Act. I may also maintain that in that case, the matter had come to the High Court after the commissioner was examined and his evidence was taken. The High Court then observed that the commissioner was appointed only to examine the premises and to ascertain the person who are in possession of the premises. To that extent only the report stood proved. The other statements relating to sub-letting and the time of subletting made in the report being beyond the scope of the order could not be relied on nor could it be said that the same have been duly proved merely on the basis of the report.
20. In the case of M. Shivarama v. Mahabala Bhatt, (Supra), the Court has categorically stated that the report would not be evidence under rule 10, sub-rule (2) of Order 26. In other words, the report by itself, without anything more, cannot become available as evidence in the suit as against the party who had no notice of the commission. However, the Court observed that the commissioner can be examined as witness in which case the report prepared by him on a prior occasion recording his observations of fact which are relevant to the disposal of the suit may be made use of either for corroborating his oral evidence or of contradiction thereof in accordance with the relevant provisions of the Evidence Act. The Kerala High Court in the case of Moreli Achuthan v. Kunhipathumma, (supra) has also taken the same view that the report cannot be treated as evidence in the suit under Order 26, Rule 10 sub-rule (2), but the commissioner can be examined and the report can be considered as a piece of corroborative evidence. The Supreme Court in the case of Smt. Rajbir Kaur & anr. v. M/s. Chokesiri & Co., (Supra) has considered that if a commissioner does not give notice as provided under Order 26, Rule 18, that is an infirmity.
21. Thus, the outcome of all these authorities and my own analysis of the law, leads as to the following conclusions. The Court has discretion to issue commission under Order 26, Rule 9 of the C.P.C. ex parte. However, after the issuance of commission, it is the duty of the Court to issue notice to the concerned party and the commission cannot be executed unless the notice is given to all the parties. I am inclined to think that the provisions of Order 26, Rule 18 are mandatory provision. If for any reason the Court fails to give notice it becomes the duty of the commissioner to give notice to the other party. After the notice is given if the parties fail to appear, the commissioner will be at liberty to proceed in their absence. Mr. Hattangadi submitted that just because under Order 26, Rule 18 the words indicate that the Court shall direct that the parties to the suit shall appear before it, it does not mean that the mere use of the wore "shall" will make it mandatory. He submitted that such a provision could be construed as "may". He also submitted that there are no penal consequence provided for non-compliance of such a provision. He further submitted that if notice was given that would defeat the object of the commission and therefore, the Court can still consider the said provisions as not mandatory. In any event he submitted that just because notice is not given, the investigation cannot be said to be bad in law. I must say that there is a basic difference between issuance of commission under Order 26, Rule 9 and the issuance of commission under Order 39, Rule 7 or 8. In the latter case, the commission is issued only for a limited purpose inasmuch as the Court is concerned with the preservation of the property and inspection of the property for the purpose of maintaining the status quo. On the other hand, issuance of commission under Order 26, Rule 9 read with Order 6, Rule 10 sub-rule (@) clearly indicates that the commission is for the purpose of investigation and for the purpose of elucidating any matter in dispute. That is why under Order 26, Rule 10 sub-rule (2) it is expressly stated that the report of the commissioner and the evidence taken by him shall be evidence in suit. It is elementary that no evidence can be recorded behind the back of a party. I always thought that in our system of justice, be it under the British or in our own republican regime, 'glasnet' was always its integral part, and no departure could ever by countenanced. We do not record or receive evidence. In secrecy, behind the back of any party. Recording of evidence or investigation of facts is necessary for the determination of a dispute, but, doing so behind the back of party is antithetic to any concept of justice. It is plainly opposed to principles of natural justice. The Court cannot permit itself to be used as a convenient tool at the manouvering of one party as against the other.
22. The only limited question which I have to consider is as to what should be the consequential value of the report that is secured in the present case. I am clear in my mind that the report cannot be received in evidence as contemplated under sub-rule (2) of Rule 10 of Order 26. It is a report illegally obtained. The Court or for that matter and other authority cannot act upon the same. Mr. Dave says that the question whether the commissioner could be examined or not does not arise in this petition. That question will arise, if only the plaintiffs think of examining the Commissioner at the time of trial.
23. This takes me to the other question whether despite the caveat the learned Judge could have issued commission without notice to the petitioner ? In other words, can it be said that the rules relating to caveat under section 148A of the C.P.C. will apply to the issuance of any commission ? Mr. Hattangadi submitted that it cannot be said that issuance of a commission under Order 26, Rule 9 is a relief. He also submitted that in the present case, the caveat only related to applications for stay, injunction appeal, revision, but did not include any such prayer for appointment of commissioner. Mr. Hattangadi also drew my attention to the case of M/s. N.D. Co-op Housing Socy. Ltd. v. M/s. Sadhana Builders, , wherein it has been held that the provisions of section 148-A are attracted in cases of such proceedings where the caveator is entitled to be heard in the ordinary course. It is further held that application for execution under Order 21, Rule 43 or 54 are not proceedings where the judgment-debtor has a right to be heard. Hence the provisions of section 148-A are not attracted to such proceedings.
24. Both the advocates have cited various authorities and I think it is not necessary for me to deal with all those cases for those cases for the simple reason that I have already held that for issuance of a commission under Order 26, Rule 9 no notice is required to be given to the other party. Therefore, the Court can issue commission without hearing the other party and in that view of the matter section 148-A has no application.
25. But in the present case I would observe that if the learned Judge issued the commission without notice to the petitioner or his advocate, he has not exercised his discretion property. The parties have been litigation ruthlessly. There are number of proceedings between the parties. There are advocates on record. In all such cases as far as possible no Court should pass any order without notice to the other side, unless there is extreme urgency which cannot wait till a notice is served on the other side. In the present case, I find no such urgency whatsoever for the purpose of commission without notice.
26. I may further observe that the conduct of the plaintiff in pursuing the commission even after the receipt of the caveat was improper. The plaintiff ought to have informed the commissioner of the caveat and in any event ought to have brought to the notice of the Court of this fact much before the execution of the commission Similarly, the commissioner could not have proceeded with the execution of the commission without notice to the petitioner or petitioner's Advocates. Mr. Hattangadi submitted, and that is the song of his theme, that if notice were to be given the very purpose of commission would have been lost. I am not inclined to accept this submission of Mr. Hattangadi. Assuming that there was some urgency, the commissioner could still have given a notice, may be of a very short duration and then proceeded with the execution of the commission. It is in this sense both the plaintiff and the commissioner sought to steal a march over the petitioner which was patently unfair.
27. Mr. Hattangadi has also raised a contention that the present revision application is not maintainable, inasmuch as the impugned order cannot be said to be an order in a case decided by the lower Court. In support of his contention be relied on certain cases.
28. However, in my view, after the amendment of the Code of Civil Procedure Code in 1976 it has been made clear that the expression "case which has been decided" includes any order made or any order deciding an issue in the course of a suit or other proceeding. Therefore, the expression "case decided" would include a part of the case and, therefore, it is now well settled that inter locutory orders can also be the subject matter of a revisional jurisdiction under section 115 of the C.P.C. It is true that in such cases the High Court shall not vary or reverse any order except inter alia where the order if allowed to stand would occasion a failure of justice or cause irreparable injury to the party against whom it was made. In the present case since the Court as also the commissioner did not comply with the mandatory provisions of Order 26, Rule 18 and executed the commission behind the back of the petitioner and since the report is liable to be tendered in evidence under Order 26, Rule 18 sub-rule (2), if the same is allowed to stand, it would certainly occasion a failure of justice. If the report is allowed to be tendered in evidence, there would be considerable prejudice to the petitioner. In my view that is sufficient for the purpose of interfering in revision and to have the order set aside.
29. Mr. Dave, in fact, pointed out that almost all cases referred to above which dealt with the legal position, either under Order 26, Rule 9 or under Order 26, Rule 18 or with regard to the issuance of commission, were all under their revisional jurisdiction of section 115 of the C.P.C. of course, if no commission is issued, there is no case decided and a revision would not lie.
In the result, I pass the following order :
I declare that the commissioner and the Court having not complied with the mandatory provisions of Order 26, Rule 18, the report so prepared by the commissioner is illegal and shall not be tendered in evidence, as provided under Order 26, Rule 10 sub rule (2) of the Code of Civil Procedure. The report shall not be used in any legal proceedings or before any other authority.
As regards prayer (b), the same is rejected as the same is not maintainable under section 115 of the Code of Civil Procedure.
Respondent Nos. 1 to 5 shall pay the costs of this petition to the petitioner.
At this stage Mr. Hattangadi applies for certificate under Article 134-A of the Constitution of India.
P.C. : I find no justification for issue of certificate under Article 134-A of the Constitution of India. I, therefore, reject the application made by Mr. Hattangadi.