Bombay High Court
Mrs.Mina Srinivasan Krishnan vs Arun Bhaskar Adarkar on 16 June, 2014
Author: S.C. Dharmadhikari
Bench: S.C. Dharmadhikari
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kps
IN THE HIGH COURT OF JUDICATURE AT BOMBAY
ORDINARY ORIGINAL CIVIL JURISDICTION
APPEAL NO.312 OF 2012
IN
SUIT NO.1173 OF 2011
ALONG WITH
NOTICE OF MOTION NO.1548 OF 2011
1) Mrs.Mina Srinivasan Krishnan.
2) Srinivasan Krishnan.
Both of Bombay, Indian Inhabitant,
residing at 1301, Le Papillon,
Mount Mary Road, Bandra (West),
Mumbai-400050 and presently
residing at Flat No.5, 2nd Floor,
Goolestan, Cuffe Parade,
Mumbai-400005. ..Appellants
(Original Defendants)
-Versus-
Arun Bhaskar Adarkar,
a person of Indian Origin, Inhabitant of
Washington D.C., U.S.A., residing at
3910 Georgetown Court, Washington D.C.,
2007-2127, U.S.A. and also having
residence at Flat No.5, 2nd Floor,
Goolestan, Cuffe Parade, Mumbai-400005. ..Respondent
(Original Plaintiff)
...........
Mr.D.D.Madon, Senior Advocate a/w Dr.Birendra Saraf, Shreema Desai,
Sahil Sayed i/by Wadia Ghandy & Company, for the Appellants.
Mr.F.E.Devitre, Senior Advocate a/w Mr.Shrikant Doijode, Ms.Rashne
Mulla-Feroze and Ms.Taruna Nagpal, Advocates i/by Doijode Associates,
for the Respondent.
...........
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CORAM: S.C. DHARMADHIKARI
AND
GIRISH S. KULKARNI, JJ.
Reserved on :- 02nd May, 2014.
Pronounced on:- 16th June, 2014.
JUDGMENT (Per Dharmadhikari, J.):
1 This Appeal under Clause 15 of the Letters Patent challenges the order passed by the learned Single Judge of this Court dated 03 rd April, 2012 on the Notice of Motion No.1548/2011 in Suit No.1173/2011. In this Notice of Motion bearing No.1548/2011 for interim relief filed in the Respondent/ Plaintiff's Suit, the Appellants/ original Defendants invoked Section 9A of the Code of Civil Procedure, 1908 as applicable to the State of Maharashtra and raised the issue of jurisdiction of this Court to entertain and try the Suit.
2 The main prayer in the Notice of Motion No.1548/2011 reads as under:-
"(a) that pending the hearing and final disposal of the Suit, the Defendants, their servants and agents be restrained by temporary order and injunction of this Hon'ble Court from entering upon or remaining on the Suit Flat viz.
Flat No.5, Second Floor, Goolestan, 37, (East) Wing, Cuffe Parade, Bombay 400005 or any part thereof without the permission of the Plaintiff;"
3 In terms of the legal provision noted above the issue of jurisdiction of the Civil Court, if raised, has to be tried as a preliminary issue and before consideration of the prayer for interim reliefs made in the ::: Downloaded on - 22/06/2014 23:29:28 ::: *3* app.312.12.scd&gsk.os.db Suit. In other words, the issue of jurisdiction can be raised at an interim stage and while the Court is considering the application for interim injunction. That is how it was raised and in the present Appeal we are only concerned with the findings on the issue of jurisdiction rendered by the learned Single Judge.
4 The learned Single Judge held that the claim or question in the subject Suit is not covered by Section 33 of the Maharashtra Rent Control Act, 1999 (for short "MRC Act"). The Civil Court has, therefore, jurisdiction to entertain and try the present Suit. The correctness of this finding and conclusion is impugned in the present Appeal.
5 The learned Senior Counsel appearing for both sides agree that the order on the above Notice of Motion is a judgment within the meaning of Clause 15 of the Letters Patent of this Court. That is how we have proceeded in this Appeal.
6 In view of the earlier orders and by consent of parties, the appeal is taken up for final hearing.
7 The issue of jurisdiction of this Court and whether the claim or question raised in the instant suit is covered by Section 33 of the MRC Act or not, will have to be decided on the basis of the allegations in the plaint. The issue of jurisdiction of a civil court cannot be decided, as is well settled, on the basis of defence or plea raised in the Written Statement. In raising the issue of jurisdiction of this Court, the Appellants alleged that the claim or question involved in the suit is referable to Section 33 of the MRC Act. They, therefore, requested the learned Single Judge to frame the issue of jurisdiction. At the instance of the Appellants ::: Downloaded on - 22/06/2014 23:29:28 ::: *4* app.312.12.scd&gsk.os.db and by consent of parties the learned Single Judge framed the following issue as a preliminary issue:-
"Whether the Defendants prove that this Hon'ble Court does not have jurisdiction to entertain and try this suit in view of Section 33 of the Maharashtra Rent Control Act, 1999?"
8 The learned Single Judge noted that both parties stated that they do not wish to lead any oral evidence on the issue. The issue has, therefore, been answered with reference to the allegations in the plaint.
We will now make a brief reference to the allegations in the plaint.
9The Respondent/ Plaintiff filed the Suit No.1173/2011 in this Court alleging that he is a senior citizen and is physically handicapped. He had Polio at the age of one year, which considerably weakened both his legs and his right arm. He has pointed out that this has affected his mobility. The Appellant No.1 is the original Defendant No.1. She is younger married sister of the original Plaintiff. The Appellant No.2 is husband of the Appellant No.1.
10 The Respondent/ Plaintiff stated in paragraph 1 of the plaint that he is a resident of Washington D.C., United States of America. He is a tenant of and in lawful and juridical as well as physical settled possession of Flat No.5, Second Floor, Goolestan, 37, East Wing, Cuffe Parade, Mumbai-400005. He is approaching this Court seeking permanent injunction against the Appellants, their servants and agents from interfering with his possession over the suit flat. It is alleged that the Appellants have trespassed into the suit flat on 23.04.2011 and disturbed peace and right of the Respondent/ Plaintiff therein.
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11 In paragraph 3 of the plaint, it is alleged that the Appellant
No.1 and original Plaintiff resided in the suit flat with their parents Bhaskar Namdeo Adarkar and Mrs.Sarla Bhaskar Adarkar and brother Vivek Bhaskar Adarkar since December, 1965. The suit flat was then owned by M/s.Patel Volkart and leased to the Reserve Bank of India where the Respondent's father was Deputy Governor. The father of Respondent became a tenant of the suit flat in or about 1969 and was paying monthly rent to Patel Volkart. The ownership of suit flat was transferred by Patel Volkart in or about 1983 to Ruchi Properties now renamed as Isha Infratech Private Limited along with the tenancy of the Respondent's father.
12 The Respondent/ Plaintiff stated as to how he was working with Asian Development Bank. As a part of his employment, he was posted outside India. The Respondent subsequently joined the services of International Monetary Fund in January, 1992 and continued to be posted outside India. He is a person of Indian origin and holds a P.I.O. Card issued by Indian Embassy at Washington D.C.. He has also referred to certain diplomatic passports issued to him and which stated in the column of permanent address the details of the suit flat.
13 The Respondent/ Plaintiff has narrated as to how he married one Meenalaxmi Sanzgiri on 22.05.1966 and from this marriage he has a son and a daughter. The said Meenalaxmi Sanzgiri expired on 04.08.1993.
14 It is alleged that the Appellant No.1 married the Appellant No.2 in or about 1970 and left the suit flat. Since the time of Appellant No.1's marriage, she has been residing with her husband (Appellant No.2) and not in the suit flat. It is alleged that the Appellant Nos.1 and 2 are ::: Downloaded on - 22/06/2014 23:29:28 ::: *6* app.312.12.scd&gsk.os.db residing at the address mentioned in the cause title of the plaint. They are staying in a duplex flat which is in the name of a Private Limited Company, namely, Lotus Learning Private Limited which is believed to be owned and controlled by the Appellants.
15 It is then alleged that the Respondent/ Plaintiff married one Ms.Fiona Shrikhande in November, 1996. Ms.Fiona Shrikhande has a daughter by name Ms.Marisha from her first marriage to one Mr.Jayant Kirtane. Ms.Fiona Shrikhande and Mr.Kirtane were divorced in 1983 and custody of daughter Ms.Marisha was, therefore, handed over to Ms.Fiona Shrikhande. After the Respondent's marriage with Ms.Fiona, Ms.Marisha also lives with the Respondent. The Respondent/ Plaintiff's children from first marriage are now settled abroad and living independently. They are married and residing with their respective families in the United States of America.
16 In paragraph 8 of the plaint it is alleged that the Respondent/ Plaintiff's father expired in Mumbai on 20.03.1998 leaving behind the Plaintiff's mother, Plaintiff, Appellant No.1 and one brother of Plaintiff, namely, Vivek Bhaskar Adarkar as the heirs. In terms of wishes of the father, the tenancy of suit flat was transferred to the mother of Appellant No.1 and Plaintiff. The landlord, however, continued to issue rent receipts in the name of deceased father. The assertion of Respondent/ Plaintiff is that he paid rent to the landlord in respect of the suit flat after his father's demise and he continues to pay the same till the date of filing of the Suit.
17 The mother of Respondent expired at Mumbai on 28.08.2001 leaving behind the Appellant No.1, Plaintiff and their brother Vivek as the heirs. A reference is made to the Will left behind by the mother dated ::: Downloaded on - 22/06/2014 23:29:28 ::: *7* app.312.12.scd&gsk.os.db 26.02.1985 in respect of which the Probate was obtained by the Respondent/ Plaintiff on 22.12.2005. It is alleged that at the time of the death of mother only the Respondent and his wife were residing with her in the suit flat. The Appellant No.1 was not residing at the suit flat, but at her matrimonial home at Bandra. In paragraph 9 of the plaint these assertions are to be found and it is further alleged that since death of the mother of Respondent in 2001, the Respondent succeeded to the tenancy of the suit flat. He has been in juridical and settled possession of the suit flat. It is the Respondent who has been regularly paying rent to the landlord. The brother of Appellant No.1 and Respondent/ Plaintiff, namely, Vivek Adarkar was residing in Burough of Queens, New York, USA. He was bachelor and expired in New York on 19.08.2009. The specific assertion in the plaint is that as the Respondent and his mother were residing with the Respondent's father in the suit flat at the time of his death and thereafter, the Respondent was residing in the suit flat along with his mother at the time of her death, he became a tenant of the suit flat in accordance with the provisions of law. In any event, the Appellant No.1 was not residing with the father or mother in the suit flat at the time of their death. This assertion coupled with moving out of the suit premises by the Appellant No.1 since her marriage is reiterated in paragraph 10 of the plaint.
18 In paragraph 11 of the plaint, it is alleged as to how at the time of father's death in 1998, the mother of Appellant No.1 and Respondent was suffering from Alzheimer's disease in an advanced stage. The responsibility of paying monthly rent was taken over by the Respondent/ Plaintiff. The Respondent paid monthly rent to the landlord which the landlord agreed to receive, but rent receipts were not issued in the name of the Respondent, but his deceased father. Reliance is placed ::: Downloaded on - 22/06/2014 23:29:28 ::: *8* app.312.12.scd&gsk.os.db upon a sample rent receipt. It is asserted that the rent is being paid by the Respondent alone since his father's death in 1998. In paragraph 12 of the plaint it is alleged as under:-
"12. The Plaintiff states that though Defendant No.1 does not have any right, title and interest in the Suit Flat, she being the Plaintiff's sister, the Plaintiff voluntarily and out of love and affection towards his sister, offered to pay her certain amount if the Plaintiff decided to surrender the tenancy of the Suit Flat. The Plaintiff, however, did not wish to surrender or transfer tenancy of the Suit Flat. Hereto annexed and marked Exhibits "E-1" to "E-6" are the copies of the emails recently exchanged between the Plaintiff and Defendant No.1 in this regard."ig
19 Thereafter, in paragraphs 14 to 19 of the plaint it is alleged as under:-
"14. As aforesaid, the Plaintiff is physically handicapped and unable to freely walk without support. Due to his physical condition, certain alterations and changes were made in the bathroom attached to the bedroom occupied by the Plaintiff in the Suit Flat. All the furniture, fixture and other items in the Suit Flat were inherited and/or purchased by the Plaintiff and his family and therefore belong to the Plaintiff. There were three sets of keys to the Suit Flat. One remained with the Plaintiff, one with the Plaintiff's daughter Marisha, and one with the Plaintiff's cousin Ms. Priya Adarkar who resides in Hyderabad and visits Mumbai frequently and stays in the Suit Flat with the Plaintiff's knowledge and consent. The Plaintiff's full time servant Shahshikant Solkar had a key to the rear door to the Suit Flat. The said Solkar has been looking after the Suit Flat since 2006 and resides in the said Flat with the Plaintiff. Even in the absence of the Plaintiff and his family members, the said Solkar stays in the Suit Flat. As such, the keys to the back door of the Suit Flat were with the said Solkar.::: Downloaded on - 22/06/2014 23:29:28 :::
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15. On 23rd April, 2011 when the Plaintiff and his wife Ms. Fiona had just returned to Washington DC from a 19 day sea voyage and the said daughter Ms. Marisha, who was otherwise residing in the Suit Flat, was on vacation in Europe, the Defendants rung the door bell at about 12.30 p.m. The said Solkar answered the door bell and looked out of the peephole on the door and saw the Defendants. But he had never seen them before and therefore did not recognize them. At that time Solkar was alone at home. When Solkar opened the door, the Defendants pushed their way into the Suit Flat. Defendant No.1 informed Solkar that she was the Plaintiff's sister and the man accompanying her was her husband, Mr. Krishnan. The Defendants told Solkar that Defendant No.1 also has rights in the Suit Flat. The Defendants then made a phone call from their mobile phone, and shortly after that a locksmith arrived and proceeded to change the lock of the front door. Solkar was frightened by the Defendants' behaviour as they were very aggressive. Defendant No.2 demanded from Solkar his key to the back door which Solkar handed over to him.
16. Solkar thereafter retreated to the kitchen and made a phone call to Ms. Priya Adarkar, the Plaintiff's cousin who had visited Mumbai from Hyderabad and had been staying in the Suit Flat till the previous day, and informed her about what had happened. Ms. Adarkar asked Solkar to call Shailesh Patkar, a friend of the Plaintiff and also inform him about what had happened. Accordingly, Solkar informed Patkar about the same.
17. The Plaintiff was informed by Solkar that after about 2 hours i.e. at about 3.00 p.m. a few policemen arrived at the Suit Flat. The said policemen asked Solkar how long he had been working for the Plaintiff in Goolestan. Solkar replied that he was with the Plaintiff for six years. The policemen also enquired with Solkar whether he recognised the Defendants. Solkar told the policemen that he had never seen the Defendants before. The police then left the Suit Flat.::: Downloaded on - 22/06/2014 23:29:28 :::
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18. Defendant No.2 then demanded to know who had informed the police and who had given Solkar the authority to make a phone call. Solkar told the police that he had called Ms. Priya Adakar and then Patkar as instructed by Ms. Priya Adarkar.
19. Defendant No.2 was very upset with Solkar for informing Ms. Priya Adarkar and Patkar about the Defendants' entry into the flat. Defendant No.2 then told him to pack all his belongings and leave the Suit Flat immediately. Defendant No.2 thrust Rs.7,500/- at Solkar and threatened Solkar by saying it was in his best interest to leave. Solkar left as he was scared by the Defendants' behaviour and went to the next door neighbours Mrs. and Mr. Malegam and told them what had happened. The neighbours said they would call the Plaintiff and asked Solkar to stay at their house. Solkar has been staying there since."
20 In paragraph 20 it is alleged that the Respondent/ Plaintiff had to interrupt his medical treatment due to a serious fall. He, therefore, came to Mumbai with his wife on 25.04.2011 in order to deal with the situation created by the Appellants' illegal and forceful entry in the suit flat. The Appellants also tried to bring in certain articles to show their presence in the flat. It is then alleged that the Appellants are presently occupying the Respondent's bedroom in the suit flat as a result whereof the Respondent is using another bedroom and is finding it extremely difficult to use that and other bathrooms which are not convenient for the use of a handicapped person. He has to, therefore, stay at a hotel and club. He has, thus, narrated as to how he and his family are uprooted in a way. There has been reference made in subsequent paragraphs to the complaints to the Police. The Respondent/ Plaintiff asserts his settled and lawful possession by relying on certain documents referred to in paragraph 22 and finally it is submitted that attempts were made to ::: Downloaded on - 22/06/2014 23:29:28 ::: *11* app.312.12.scd&gsk.os.db resolve the dispute between brother and sister amicably, but they could not succeed. With all these and such allegations including the claim for damages that the suit has been filed in this Court with other usual averments on 11.05.2011. The prayers in the Suit read as under:-
(a) that the Defendants be ordered and decreed to jointly and/or severally pay to the Plaintiff a sum of Rs.6,69,982/- (Rupees Six Lakhs Sixty Nine Thousand Nine Hundred Eighty Two only) as per the Particulars of Claim (being Exhibit "l" hereto) and interest thereon at the rat of 18% per annum from the date of filing of the Suit till payment or realisation thereof;
(b) that this Hon'ble Court be pleaded to permanently restrain the Defendants, their servants and agents by an order and injunction from entering upon or remaining on the Suit Flat viz. Flat No.5, Second Floor, Goolestan, 37, (East) Wing, Cuffe Parade, Bombay 400 005, or any part thereof without the permission of the Plaintiff;
(c) that pending the hearing and final disposal of the Suit, the Defendants, their servants and agents be restrained by temporary order and injunction of this Hon'ble Court from entering upon or remaining on the Suit Flat viz.
Flat No.5, Second Floor, Goolestan, 37, (East) Wing, Cuffe Parade, Bombay 400 005, or any part thereof without the permission of the Plaintiff;
(d) for ad-interim relief in terms of prayer clause (c) above."
21 In furtherance of the final reliefs the Respondent/ Plaintiff applied for interim reliefs by moving the above referred Notice of Motion. The interim prayers have also been reproduced by us above.
22 Upon being served with the papers and proceedings the Appellants filed an affidavit affirmed by the Appellant No.1. It is asserted ::: Downloaded on - 22/06/2014 23:29:28 ::: *12* app.312.12.scd&gsk.os.db that the Appellant No.1 is also a tenant in the suit flat along with the Respondent/ Plaintiff and she does not require his permission to enter or remain in the suit flat. There cannot be a dispute with regard to her right as a tenant. Apart therefrom, in this affidavit in reply which has been filed on 14.06.2011 what has been stated in paragraph 21 is that the Appellant No.1 has filed a suit in the Court of Small Causes at Mumbai for a declaration that she is a tenant in her own right and which tenancy is protected by the MRC Act. Alternatively, she claimed a declaration that she is a tenant along with the Respondent in the suit flat. She denied the allegations and pointed out that the Respondent is paying rent to the landlord in his capacity as an executor of the parent's estate. It is alleged by the Appellant No.1 that from 2001 she is making payment to the Respondent initially by cheque and later by cash to help defray the expenses including rent of the suit flat. It is in these circumstances what we find is that some additional denials have been raised in this affidavit in reply.
23 There is a rejoinder affidavit of the Respondent/ Plaintiff affirmed in the month of August, 2011. However, what one finds is that there is an affidavit additionally filed by the appellants in which in paragraph 2(a) the issue of jurisdiction has been raised. The Appellant No.1 in the additional affidavit in reply filed on 30.09.2011 submitted that this Court has no jurisdiction to entertain and try the suit. It was asserted that the real dispute between the parties and as disclosed in the plaint itself is, whether, the Respondent/ Plaintiff is the sole tenant of the suit flat to the exclusion of the Appellant No.1. This is the question which directly arises under the MRC Act. Further, even the landlord has not been made a party to the suit. There is an erroneous reference to the allegations of trespass so as to bring the claim or question within the jurisdiction of ::: Downloaded on - 22/06/2014 23:29:28 ::: *13* app.312.12.scd&gsk.os.db this Court. But, the dispute clearly falls under Section 33 of the MRC Act for which it is not necessary for the parties to have the legal relationship of landlord and tenant. It is the substance of the claim and not the manner in which the allegations are made or framed that is relevant. Ingenuity in drafting the plaint cannot confer jurisdiction on this Court. When the claim is of this nature, then, the Court may frame the issue of jurisdiction as a preliminary issue as statutorily mandated under Section 9A of the Code of Civil Procedure, 1908 and as amended in the State of Maharashtra.
24It is in accordance with the above assertions that the learned Single Judge framed the preliminary issue of jurisdiction and in terms aforesaid.
25 After perusal of the pleadings and hearing the learned Counsel at great length the learned Single Judge held that the plaint alleges that the Respondent/Plaintiff is a tenant and claims to be in lawful, juridical and settled physical possession of the suit flat. The Appellants are forcibly and illegally trespassing in the same. They were never in settled and lawful possession of the suit flat. They do not have any right, title and interest in the suit flat. The learned Single Judge held that this is not a case between the landlord and tenant. The landlord is not involved in this litigation between the heirs of the deceased tenant. There is no question of any relationship of licensor or licencee or their such related rights. Both parties are claiming rights over a tenanted flat being the heirs of the deceased tenant. The Respondent/ Plaintiff's long and settled possession is quite established and as supported by the documents on record. This is inter-se dispute between the legal heirs of the deceased tenant. Therefore, the suit filed cannot be treated as a proceeding for eviction in relation to ::: Downloaded on - 22/06/2014 23:29:28 ::: *14* app.312.12.scd&gsk.os.db the landlord-tenant relationship. It is the claim of the Respondent/ Plaintiff being in settled possession of the suit flat. He is treating the Appellants as trespassers. Paragraphs 10 and 11 of the order under challenge read as under:-
"10. This is not a case of landlord and tenant. The landlord is not involved in this litigation between the heirs of the deceased tenant. There is no question of any relationship of licensor and licensee or their such related rights. Both the parties are claiming rights over the tenanted flat being heirs of the deceased tenant. The plaintiffs long and settled possession is quite established as supported by documents on record. It is the case and relief against the Defendants no where refer or deal with any aspect of landlord and tenant or Licensor or Licensee relationship. This is a inter-se dispute between legal heirs of the deceased tenant. In absence of any proceedings or involvement of the landlord, in the present case, the Suit so filed cannot be treated as a Suit or proceedings for eviction or in relation to the Landlord and tenant relationship. The Plaintiff is claiming, being in settle possession of the flat, reliefs against the Defendants treating them trespassers. There are even Criminal Complaints filed. It is settled that all the legal heirs of the deceased, unless, accepted and/or treated by the landlord, cannot claim tenancy over the flat. Therefore, as there is dispute between the heirs of the tenant with regard to the possession or occupation rights in full or in part and in the present facts and circumstances, therefore, the Suit is maintainable in this Court.
11. Any proceedings, even if any, initiated by the Defendants for claiming tenancy rights over the suit property cannot decide the jurisdiction of this Court. The tagging of the Suit is not a issue. Both the parties have been making allegations and counter allegations of trespassing against each others and claiming rights accordingly over the flat. The Court will decide it after due trial. The Suit is not between the landlord and tenant/licensor or licensee. The same is not initiated by the landlord. The ::: Downloaded on - 22/06/2014 23:29:28 ::: *15* app.312.12.scd&gsk.os.db landlord is not a party to this proceeding, initiated by the heirs of the deceased tenant to protect their respective rights and the possession. It nowhere related to the recovery of rent or possession of the tenanted premises."
26 It is correctness of these findings that is challenged in this Appeal.
27 Mr.Madon, learned Senior Counsel appearing for the Appellants, submitted that if paragraphs 8 to 12 of the plaint are carefully perused together with paragraph 15 thereof and the prayers, then, this is not a suit under Section 6 of the Specific Relief Act, 1963. The suit at best can be said to be one falling under Section 5 of the Specific Relief Act, 1963. The Appellant No.1 has filed prior suit in the Court of Small Causes at Mumbai for a declaration that she is a tenant in respect of the suit flat.
All allegations on merits are denied. However, for the purpose of the present Appeal and if one goes by the plaint allegations, then, this is not a suit simplicitor to protect the settled physical possession. The Respondent/ Plaintiff has been very cautious and careful in making the plaint allegations. He knows that he is not residing in India. He knows that he is not residing in the suit flat. He, therefore, claims that he is in lawful, juridical as well as physical settled possession of the suit flat. However, both the Respondent and the Appellants are not residing in the suit flat. The claim is not to protect the physical possession, but in essence and substance it is to assert the exclusive tenancy rights. Therefore, this is a claim or question squarely falling within Section 33 of the MRC Act. Mr.Madon has invited our attention to Section 33 of the MRC Act and submitted that it is not the choice of the Respondent/ Plaintiff as to in ::: Downloaded on - 22/06/2014 23:29:28 ::: *16* app.312.12.scd&gsk.os.db which forum a claim or question about who inherits the tenancy rights can be decided. Once Section 33 of the MRC Act is perused and analyzed, then, it is only the Court of exclusive jurisdiction mentioned therein which is empowered to decide this claim or question. That is to the exclusion of an ordinary civil court. This Court on original side is an ordinary civil court and therefore, it's jurisdiction is barred.
28 Mr.Madon was at pains to point out that the plaint allegations have to be read as a whole and in their entirety. So read and considered, this is a claim or question about who shall step into the shoes of the deceased tenant. That is a claim or question falling outside the general law. It is a claim or question under the MRC Act. In that regard Mr.Madon invites our attention to the definition of the term "tenant" appearing in Section 7(15) of the MRC Act. Mr.Madon submits that the allegations in paragraphs 1 to 10 of the plaint would show that they are not the background facts or introductory narration simplicitor. This is not a suit where a person in settled physical possession claims a permanent injunction to restrain the opponents from disturbing or obstructing the same save and except by due process of law. This is not a claim to protect physical possession against a trespasser as is observed by the learned Single Judge. This is a claim or question with regard to who should step into or inherit the tenancy. That is a question which can be answered only by the Court of exclusive jurisdiction. Mr.Madon then submits that non- joinder of the landlord is also fatal. Therefore, the learned Single Judge was in error in answering the issue of jurisdiction against the Appellants and in favour of the Respondent/ Plaintiff.
29 Mr.Madon then submits that the impugned order is contrary to law and deserves to be quashed and set aside because the term or word ::: Downloaded on - 22/06/2014 23:29:28 ::: *17* app.312.12.scd&gsk.os.db "court" appearing in Section 7(15) of the MRC Act cannot be a court other than the Small Causes Court. The Legislature never intended that a claim or question falling under and covered by the MRC Act should be decided by any court other than the court of exclusive jurisdiction. If this interpretation is not placed on the provision in question, then, a parallel inquiry or proceeding would be maintainable. That is not intended by law.
Who should step into the shoes of the deceased tenant in the event there is no member of the family residing with a tenant at the time of his death, is the question which needs to be and must be answered by the Court of exclusive jurisdiction. That would bring about certainty and finality to the issue or claim. Thereafter, the landlord has to recognize that person as a tenant and accept the rent from him/her. The Legislature could not have intended that a claim or question of this nature should be decided by an ordinary civil court. The very object and purpose of conferring the authority or jurisdiction in the courts specified in Section 33 of the MRC Act then would be defeated. If there is a dispute about the tenancy rights, then, an ordinary Civil Court has no jurisdiction. Mr.Madon submits that the permanent injunction as claimed cannot be granted unless the claim or question raised in the present suit is answered. That has to be decided before granting the relief. That cannot be decided by an ordinary civil court. More so, when in this case the Respondent/ Plaintiff asserts that he was residing with the tenant at the time of his/ her death whereas the law does not postulate any such requirement in the case of a heir. As to which heir succeeds to the tenancy rights in the eventuality of the tenant dying leaving no member of family residing with him at the time of his death, is the issue which must be decided by the Court of Small Causes, failing which the legislative mandate would be rendered nugatory. For all these reasons, Mr.Madon submits that the impugned order be quashed and set aside.
::: Downloaded on - 22/06/2014 23:29:28 :::*18* app.312.12.scd&gsk.os.db 30 Mr.Madon relies upon the following decisions in support of his above contentions:- (1) 2003(6) Bom. C.R. 787 Sadbuddhi Brahmesh Wagh & others. v/s Sheela Mahabaleshwar Wagh and others. (2) (1989) 2 SCC 77 H.C.Pandey v/s G.C.Paul. (3) AIR 1972 Bombay 113 Miss Gool Rustomji Lala v/s Jal Rustomji Lala. (4) (2004) 1 Mah.L.J. 540 : (2004) 1 Bom.CR 839
Vimalabai Keshav Gokhale v/s Avinash Krishnaji Biniwale.
(5) AIR 1980 Bombay 123 Nagin Mansukhlal Dagli v/s Haribhai Manibhai Patel.
(6) (1994) 3 SCC 481 Vasant Pratap Pandit v/s Dr.Anant Trimbak Sabnis.
(7) 2014 (1) Mh.L.J. 244 Sanyam Realtors Pvt.Ltd. v/s Shyamji Bhagirathi Yadav.
(8) 1981 Mah.L.J. 876 : 1981 Bom. CR 956
C.J.Ghadiali and others v/s Z.B.Wadiwalla.
(9) (2001) 5 SCC 1
Ashok Chintaman Juker v/s Kishore Pandurang Mantri.
(10) (2008) 4 SCC 594 Anathula Sudhakar v/s P.Buchi Reddy (dead) by LRs.
31 On the other hand, Mr.Devitre, learned Senior Counsel appearing for the Respondent/ Plaintiff, submits that there is no substance in the challenge raised in this Appeal. Mr.Devitre submits that the ::: Downloaded on - 22/06/2014 23:29:28 ::: *19* app.312.12.scd&gsk.os.db impugned order does not suffer from any serious legal infirmity leave alone perversity. It does not require any interference in this Court's appellate jurisdiction. The Letters Patent Appeal, therefore, be dismissed.
32 Mr.Devitre submits that the argument that the claim or question is covered by Section 33 of the MRC Act is wholly misconceived.
It is erroneous to assume that the allegations in the plaint on which alone the question of jurisdiction of this Court has to be decided, refer to any relationship which is contemplated and envisaged by Section 33 of the MRC Act and Section 28 of the old Rent Act, namely, the Bombay Rents, Hotel and Lodging House Rates Control Act, 1947 (for short Bombay Rent Act). Mr.Devitre also submits that the difference in the language of two enactments should be noted. The wording of Section 28 of the Bombay Rent Act was wider. In the present case the omission of some of the words appearing in Section 28 of the old Act from Section 33 of the new Act, namely, MRC Act cannot be lost sight of. This is not the case where a claim or question allegedly raised falls within the ambit and scope of Section 33 of the MRC Act.
33 Mr.Devitre submits that the allegations in the plaint do not raise any issue of tenancy. The plaint allegations read as a whole point towards settled possession of the Respondent/ Plaintiff and which is disturbed on 23.04.2011. The sister of Respondent/ Plaintiff, namely, Appellant No.1 assumes that such an issue has been raised. It is not that the Respondent/ Plaintiff is required to allege that he is a tenant in respect of the suit flat. He has only to demonstrate his physical possession so as to enable him to seek protection of this Court by way of permanent injunction. If he is in physical possession and which is settled as urged, then, his possessory rights in respect of the suit flat are required to be ::: Downloaded on - 22/06/2014 23:29:28 ::: *20* app.312.12.scd&gsk.os.db protected. The allegations in the plaint are that the Appellants are trespassers and have, therefore, no right to be in physical possession or remain in the suit flat. The joint offer, which was made allegedly, is being capitalized upon to urge that the claim or question is arising out of Section 33 of the MRC Act. Mr.Devitre submits that paragraphs 8 and 9 of the plaint and prior paragraphs are merely background facts. The claim of settled physical possession is not resting on the same. That is raised in paragraphs 20 to 23 of the plaint which are appearing at pages 207 to 209 of the paper book. They are the core of plaint. Mr.Devitre also submits that the settled possession of the Respondent/ Plaintiff is undisputed. Further that he is a tenant of the suit flat is also not disputed and in that regard Mr.Devitre invites our attention to paragraphs 20 and 22 (running pages 49 and 50) of the paper book which is an affidavit in reply of the Appellant No.1.
34 Assuming without admitting that this is a case of a joint tenancy, yet Mr.Devitre urges that the plaint allegations point towards the position that one co-tenant cannot oust the other. That the Respondent/ Plaintiff is a tenant of the suit flat is admitted. It is in these circumstances when the Respondent/ Plaintiff asserts his settled physical possession in that capacity and alleges obstruction and disturbance thereof, then, a permanent injunction as claimed can be granted only by an ordinary civil court. The jurisdiction of an ordinary civil court cannot be said to be ousted. Mr.Devitre urges that ouster of jurisdiction of an ordinary civil court is not to be lightly inferred. It is either specifically ousted or is to be implied by reading the statute in its entirety. So considered, the suit in the present case lies in the ordinary original civil jurisdiction of this Court and cannot be said to be barred nor is the same required to be filed in the Court of Small Causes.
::: Downloaded on - 22/06/2014 23:29:28 ::: *21* app.312.12.scd&gsk.os.db
35 Mr.Devitre was at pains to point out that background facts in
paragraphs 8 and 9 of the plaint relating to the tenancy rights would not alter the character of the Suit. For a suit or proceeding or application to fall under Section 33 of the MRC Act it must be firstly, between the landlord and tenant; secondly, it must be relating to recovery of rent or possession and thirdly, it must raise a claim or question concerning the relationship of the landlord and tenant. The words "no other court shall have jurisdiction to entertain any such suit, proceeding or application or to deal with such claim or question" as appearing in clause (c) of sub-section (1) of Section 33 of the MRC Act, show that the Legislature intended that only a suit or proceeding between the landlord and tenant and relating to recovery of rent or possession of any premises and raising a claim or question arising from that relationship would be triable by the Court of Small Causes. A non-obstante clause enacted by sub-section (1) of Section 33 and various sub-sections of Section 33 would reaffirm this position, according to Mr.Devitre.
36 Mr.Devitre then points out that sub-section (1) of Section 28 of the old Act had a provision and worded widely, namely, "and to decide any application made under this Act and to deal with any claim or question arising out of this Act or any of its provisions" which are not to be found in Section 33 of the MRC Act i.e. new Act. The omission of these words is crucial and must be taken note of or else we would reach an erroneous conclusion on the point of jurisdiction. Mr.Devitre has also invited our attention to the Bombay Rent Control Rules, 1948 and particularly Rules 5, 6 and 8 to urge that even the language of the Rules supports the interpretation placed by him. Mr.Madon has also relied on these Rules.
::: Downloaded on - 22/06/2014 23:29:28 ::: *22* app.312.12.scd&gsk.os.db
37 Finally, Mr.Devitre would submit that at best the suit projects
a claim or question as to which of the heirs would succeed to the tenancy rights. If the Respondent/Plaintiff cannot succeed on the footing that he is tenant under Section 7(15) as he was residing as a member of the family with the deceased father/ mother at the time of his/ her death, still the claim or question as to being a heir of the deceased could he be said to be a tenant in his own right and to the exclusion of other heirs or he succeeds or inherits the tenancy rights with other heirs can be decided by only a ordinary Civil Court. That is a claim falling within the competence and jurisdiction of an ordinary civil court. There is no merit in the argument that such claim or question must be decided by the Court under Section 33 alone and not otherwise. Mr.Devitre submits that the jurisdiction is conferred by Section 33 on the pre-existing courts. The MRC Act does not create any new courts, but defines jurisdiction of the existing courts. The exclusive jurisdiction, therefore, is conferred on the existing courts.
Further, the MRC Act does not create the landlord and tenant relationship. That is created by the general law. The MRC Act only regulates such relationship. Therefore, so long as the landlord has to recognize in terms of Section 7(15), only one of the heir of the original tenant and who do not agree with each other, then, forum to adjudicate on the inter-se rights is an ordinary civil court. More so, when matters of succession and inheritance are not arising out of the Rent Act or any of its provisions. For all these reasons, Mr.Devitre submits that this Appeal be dismissed.
38 Mr.Devitre relies upon the following decisions in support of his above noted contentions:-
(1) (2003) 5 SCC 150 T.Lakshmipathi and others v/s P.Nithyananda Reddy and ::: Downloaded on - 22/06/2014 23:29:29 ::: *23* app.312.12.scd&gsk.os.db others.
(2) (2004) 1 SCC 769 Rame Gowda (dead) by LRS v/s M.Varadappa Naidu (dead) by LRS.
(3) AIR 1967 Bombay 434 Vishnu Dutt Vashisth v/s Maharashtra Watch and Gramophone Company and Firm at Bombay.
(5) Bombay Law Reporter (Vol.LX) Page 374 Shivaling Gangadhar Tambekar v/s Navnitlal Amritlal Gandhi.
(6) AIR 1971 Bombay 38 Mirabelle Hotel Co. Pvt.Ltd. v/s Manu Subedar and others.
(7) (1995) 2 SCC 665 Mansukhlal Dhanraj Jain and others v/s Eknath Vithal Ogale.
(8) (1981) 1 SCC 523 Natraj Studios (P) Ltd. v/s Navrang Studios and another.
(9) (2009) 10 SCC 425 Laxmidas Morarji (dead) by LRS v/s Behrose Darab Madan.
(10) (1985) 2 SCC 54 Abdulla Bin Ali and others v/s Calappa and others.
39 In rejoinder, Mr.Madon submits that it is fallacious to urge that the term "court" appearing in Section 7(15) is not the one specified in ::: Downloaded on - 22/06/2014 23:29:29 ::: *24* app.312.12.scd&gsk.os.db Section 33 of the MRC Act. Any agreement between the heirs as to who should succeed or inherit the tenancy rights necessarily means an agreement to which the landlord is a party. It could not be an agreement only between the heirs and to the exclusion of the landlord. Mr.Madon submits that the arguments of Mr.Devitre proceed on a wholly untenable and erroneous foundation in law. The claim in this case is of tenancy and not of heirship. The dispute is, which of the heirs should be recognized as a tenant under the MRC Act. Therefore, the subject matter of the present suit necessarily falls under Section 33 of the MRC Act and looked at from any angle the learned Single Judge was in error in holding that the Appellants failed to prove that this Court has no jurisdiction to entertain and try the present Suit. Mr.Madon, therefore, reiterates that the impugned judgment be set aside and the Appeal be allowed.
40 With the assistance of Mr.Madon and Mr.Devitre, we have perused the memo of Appeal including the impugned order. We have carefully perused the plaint allegations. We have also perused the legal provisions brought to our notice and the decisions relied upon by the counsel.
41 For proper appreciation of the rival contentions we must refer to the Rent Control Legislations in the field.
42 The Maharashtra Rent Control Act, 1999 (Maharashtra Act No.18 of 2000) was brought into effect from 31.03.2000. It is an Act to unify, consolidate and amend the law relating to control of rent and repairs to certain premises and of eviction and for encouraging the construction of new houses by assuring a fair return on the investment by landlords and to provide for the matters connected with the purposes ::: Downloaded on - 22/06/2014 23:29:29 ::: *25* app.312.12.scd&gsk.os.db aforesaid. The statement of objects and reasons of the Maharashtra Rent Control Bill, 1993 pointed out as to how there are three different rent control laws which were in operation in the State of Maharashtra. As far as the areas of erstwhile Bombay State which is now included in the State of Maharashtra on reorganization of States are concerned, the Bombay Rents, Hotel and Lodging House Rates Control Act, 1947 was in operation.
In the areas of the Central Provinces and Berar, namely, Vidarbha Region, which were formerly in the State of Madhya Pradesh and which are now included in the State of Maharashtra, the Central Provinces and Berar Letting of Houses and Rent Control Order, 1949 issued under the Central Provinces and Berar Regulation of Letting of Accommodation Act, 1946 was in operation. In Marathwada areas which were formerly in the State of Hyderabad and now included in the State of Maharashtra, the Hyderabad Houses (Rent, Eviction and Lease) Control Act, 1954 was in operation. The Bombay Rent Act was a temporary Act, the duration of which was extended from time to time and it had been so extended upto and inclusive of 31.03.1996. The statement of objects and reasons to the extent relevant reads as under:-
"2. Many features of the rent control laws have outlived their utility. The task, therefore, of unifying, consolidating and amending the rent control laws in the State and to bring the rent control legislation in tune with the changed circumstances now, had been engaging the attention of the Government. Government had, therefore, initially appointed the Rent Act Enquiry Committee generally to study and examine and to make recommendations to Government with respect to unified legislation if considered desirable and feasible or otherwise to suggest modifications in the existing three rent control laws. The committee, had in its report, recommended that there should be one unified Act which should extend to the whole of the State and for that matter the committee had also appended a draft ::: Downloaded on - 22/06/2014 23:29:29 ::: *26* app.312.12.scd&gsk.os.db legislation to its report. The State Law Commission which was functioning for some time had also examined the three rent control laws including the report submitted, and the draft legislation prepared by the Rent Act Enquiry Committee. The State Law Commission has also attempted unification and revision of the rent control laws and in its Twelfth Report on the Unification of Rent Restriction Laws it has recommended to enact a unified and consolidated rent Act for the entire State.
The State Law Commission has also appended to its report a draft legislation. The draft legislation prepared by the State Law Commission is generally on the pattern of the Bombay Rent Act, but the thrust given by the Law Commission has been in respect of exemption of new constructions from the operation of the provisions of the rent law for a specified period and that there should be a provision for a periodic increase in the rent.
3. In the meantime, the Central Government announced the National Housing policy which recommends inter alia to carry out suitable amendments to the existing rent control laws for creating and enabling involvement in housing activity and for guaranteeing access to shelter for the poor. The National Housing Policy further recognised the important role of rent housing in urban areas in different income groups and low-income households in particular who cannot afford ownership house. The existing rent control legislation has resulted in a freeze or rent, very low returns in investment and difficulty in resuming possession and has adversely affected investment in rental housing, and caused deterioration of the rental housing stock. A number of expert bodies such as Economic Administration Reforms Commission and the National Commission of Urbanisation have recommended reform of the rent legislation in a way that balances the interests of both landlord and the tenants and also stimulates future construction. The National Housing Policy envisages amendment of the State rent control laws for bringing about uniformity in their application throughout country. Having regard to all these aspects the Central Government formulated a suitable model rent law ::: Downloaded on - 22/06/2014 23:29:29 ::: *27* app.312.12.scd&gsk.os.db incorporating the views outlined in the policy paper and in July 1992 had laid the same on the Table of both Houses of Parliament.
4. The Model Rent Control Legislation formulated by the Central Government envisages primarily,--
(a) limiting the jurisdiction of the Rent Control Act to large cities;
(b) exemption for 15 years to new constructions and substantially renovated houses;
(c) exemption of residential and non-residential premises carrying more than a prescribed rent;
(d) fixation of standard rent based on market value of the land and cost of construction and revision of rent of existing tenancies on graduated basis;
(e) periodic revision of rent based on current prices index;
(f) obligations of landlords and tenants to be defined and penalties provided for their violation;
(g) provisions for eviction of tenant under limited or long term tenancy to enable resumption of possession by the landlord in stipulated circumstances,with summary procedure for certain vulnerable groups;
(h) setting up a two tier system of adjudication with Rent Controllers and Tribunals by ousting the jurisdiction of courts and installing speedy and simplified procedures for settling disputes within a year.
5. This is a Bill to unify, consolidate and amend the three rent control laws which are in operation in the State. The Bill generally adopts the provisions contained in the Model Rent Legislation with suitable modifications to suit the circumstances at present obtaining in the State.
6. The present Bill is generally on the provisions which were obtaining in the Bombay Rents, Hotel and Lodging House Rates Control Act, 1947. The modifications suggested by the Rent Enquiry Committee, the State Law Commission and the Model Rent Legislation have also been taken into consideration.
7. The following notes on some of the important provisions ::: Downloaded on - 22/06/2014 23:29:29 ::: *28* app.312.12.scd&gsk.os.db made in the Bill would explain the changes made in the existing rent control laws, namely :-
(a) Clause 3(1)(b) exempts from the purview of the Act premises let to foreign missions, international agencies, multinational companies and public limited companies having a paid-up share capital of more than one crore rupees;
(b) clause 6 provides that the provisions relating to standard rent and permitted increased shall not apply for a period of 40 years to premises let in buildings constructed and reconstructed after 1st day of October 1987 and to premises let or given on licence where such premises were not let or given on licence for a continuous period of one year. The exemption is expected to provide the necessary fillip too investment of rental accommodation besides bringing into market rental houses or flats which have been kept vacant as the landlords are apprehensive that once they have let out the premises, regaining possession thereof would be extremely difficult because of the cumbersome procedure under the existing rent control laws in operation in the State;
(c) clause 2(2) ensures that the existing protection to the tenants in the areas where the three Rent Acts are in force remains unaltered;
(d) rents have remained frozen at pre-war levels. A certain degree of relief in increase in rent was provided to the landlords in the areas to which the Bombay Rents, Hotel and Lodging House Rates Control Act, 1947 applies. No such relief was however, available to the landlords in the Vidarbha region and Marathwada region. Under clause 12 of the Bill it is proposed to permit the landlords to raise rent by 5 per cent, every year irrespective of whether the premises are used for residential or non-residential purposes;
(e) there has been no major departure from the existing provision relating to the fixation of standard rent though an important features of the Bill is the limitation placed for making an application for fixation of standard rent which application can now be made only within a period of one year from the date of demand of excessive rent or permitted increases by the landlord or ::: Downloaded on - 22/06/2014 23:29:29 ::: *29* app.312.12.scd&gsk.os.db within a period of one year from the commencement of this Act, as the case may be. The Bill seeks to ensure that the protection afforded by the three Acts in force in the State remain unimpaired by providing categorically that no tenant can be evicted as long as he continues to pay the amount of standard rent and permitted increases, if any, and observes and performs the other conditions of the tenancy, the only exception being when the landlord needs the premises for his own bona fide personally residence;
(f) (i) the Bombay Rents, Hotel and Lodging House Rates Control Act, 1947 provided special relief of making application to the Competent Authority for possession of the premises, by the landlords who have given premises on licence, any by the members of the armed forces and scientists in the department of Atomic Energy, Government of India who require the premises for bona fide use by themselves. It is possible for these categories of landlords to gain from their tenants the possession of any premises on expiry of the period of licence or, in the case are bona fide required by the applicant for accommodation by himself or by any member of his family;
(ii) Clause 24 seeks to add one more category, namely, Government servants whether of the State Government of the Union Government to the abovementioned categories, namely, the member of the armed forces and the scientists;
(g) the provisions relating to licences, and the members of the armed forces, scientists and Government servants have now been extended to the whole State and it is expected that the provisions relating to the summary disposal of application by the Competent Authority will have the desired effect of curtailing the delay in the disposal of these cases. With this end in view clause 44 provides that no appeal shall lie against an order for the recovery of possession of premises made by the Competent Authority. A revision under the said clause shall lie to the Stat Government."
43 Chapter-I of the MRC Act, 1999 contains preliminary ::: Downloaded on - 22/06/2014 23:29:29 ::: *30* app.312.12.scd&gsk.os.db provisions. Section 1 is the short title, extent and commencement of the Act, namely, Maharashtra Rent Control Act, 1999. The Act shall extend to the whole of the State of Maharashtra. Section 2 in this chapter states that the MRC Act shall, in the first instance, apply to the premises let for the purposes of residence, education, business, trade or storage in the areas specified in Schedules I and II. Section 2 reads as under:-
"Section 2. Application.-
(1) This Act shall, in the first instance, apply to premises let for the purposes of residence, education business, trade or storage in the areas specified in Schedule I and Schedule II.(2)
Notwithstanding anything contained in sub-section (1), it shall also apply to the premises or, as the case may be, houses let out in the area to which the Bombay Rents, Hotel and Lodging House Rates Control Act, 1947 (Bom. L VII of 1947), or the Central Provinces and Berar Letting of Houses and Rent Control Order, 1949 issued under the Central Provinces and Berar Regulation of Letting of Accommodation Act, 1946 (C.P. and Berar Act XI of 1946), and the Hyderabad Houses (Rent, Eviction and Lease) Control Act, 1954 (Hyd. Act No.XX of 1954), were extended and applied before the date of commencement of this Act and such premises or houses continue to be so let on that date in such areas which are specified in Schedule I to this Act, notwithstanding that the areas ceases to be of the description therein specified.
(3) It shall also apply to th premises let for the purposes specified in sub-section (1) in such of the cities or towns as specified in Schedule II.
(4) Notwithstanding anything contained hereinabove, the State Government may, by notification in the Official Gazette, direct that -
(a) this Act shall not apply to any of the areas specified in Schedule I or Schedule II or that it shall not apply to any one or all purposes specified in sub-section ::: Downloaded on - 22/06/2014 23:29:29 ::: *31* app.312.12.scd&gsk.os.db (1);
(b) this Act shall not apply to any premise let for any or all purposes specified in sub-section(1) in the areas other than those specified in Schedule I and Schedule II."
44 Section 3 contains the provisions of exemption inasmuch as it has been clarified that the MRC Act shall be inapplicable to certain premises and equally the State Government has been given powers to exempt from the provisions of this Act certain premises and that is provided by Section 3(2). Then comes Section 4 which gives powers to the State Government to issue orders in respect of premises belonging to local authority. The exemption can cease and the provision with regard to cessation of exemption is contained in Section 5. Section 6 states that the provisions with regard to standard rent not to apply to certain premises. Then comes the definition section, namely, Section 7 and the definition of the term "landlord" appearing in Section 7(3), the definition of the term "legal representative" appearing in Section 7(4), the definition of the term "paying guest" appearing in Section 7(7), the definition of the term "premises" appearing in Section 7(9) and the definition of the term "tenant" appearing in Section 7(15) are relevant for the purpose of the present matter and they read as under:-
"7(3) "Landlord" means any person who is for the time being, receiving, or entitled to receive, rent in respect of any premises whether on his own account or on account, or on behalf, or for the benefit of, any other person or as a trustee, guardian, or receiver for any other person or who would so receive the rent or be entitled to receive the rent if the premises were let to a tenant; and also includes any person not being a tenant who from time to time derives title under a landlord, and further includes in respect of his subtenant, a tenant who has sub-let any premises; and also includes, in respect of a licensee ::: Downloaded on - 22/06/2014 23:29:29 ::: *32* app.312.12.scd&gsk.os.db deemed to be a tenant under the provisions of the Bombay Rents, Hotel and Lodging House Rates Control Act, 1947, the licensor who has given premises on licence and in respect of the State Government or as the case may be, the Government allottee referred to in sub-
clause (b) of clause (2) deemed to be a tenant by section 27, the person who was entitled to receive the rent if the premises were let to a tenant immediately before the 7 th December, 1996, that is before the coming into force of the Bombay Rent, Hotel and Lodging House Rates Control, Bombay Land Requisition and the Bombay Government Premises (Eviction) (Amendment) Act, 1996;
7(4) "legal representative" means a legal representative as defined in the Code of Civil Procedure, 1908, and includes also, in the case of joint family property, the joint family of which the deceased person was a member;
7(7) "paying guest" means a person, not being a member of the family, who is given a part of the premises, in which the licensor resides, on licence;
7(9) "premises" means any building or part of a building let or given on licence separately (other than a farm building) including,-
(i) the gardens, grounds, garages and out-houses, if any, appurtenant to such building or part of a building,
(ii) any fittings affixed to such building or part of a building for the more beneficial enjoyment thereof, but does not include a room or other accommodation in a hotel or lodging house;
7(15) "tenant" means any person by whom or on whose account rent is payable for any premises and includes -
(a) such person -
(i) who is a tenant, or
(ii) who is a deemed tenant, or
(iii) who is sub-tenant as permitted under a contract or by the permission or consent of the landlord, or
(iv) who has derived title under a tenant, or ::: Downloaded on - 22/06/2014 23:29:29 ::: *33* app.312.12.scd&gsk.os.db
(v) to whom interest in premises has been assigned or transferred as permitted, by virtue of, or under the provisions of, any of the repealed Act;
(b) a person who is deemed to be a tenant under section 25;
(c) a person to whom interest in premises has been assigned or transferred as permitted under section 26;
(d) in relation to any premises, when the tenant dies, whether the death occurred before or after the commencement of this Act, any member of the tenant's family, who -
(i) where they are let for residence, is residing, or
(ii) where they are let for education, business, trade or storage, is using the premises for any such purpose, with the tenant at the time of his death, or, in the absence of such member, any heir of the deceased tenant, as may be decided, in the absence of agreement, by the court;
Explanation. - The provisions of this clause for transmission of tenancy shall not be restricted to the death of the original tenant, but shall apply even on the death of any subsequent tenant, who becomes tenant under these provisions on the death of the last preceding tenant."
45 Chapter-II contains the provisions regarding fixation of standard rent and permitted increases. Therein, Section 8 reads as under:-
"8. Court may fix standard rent and permitted increases in certain cases. -
(1) Subject to the provisions of section 9 in any of the following cases, the court may, upon an application made to it for the purpose, or in any suit or proceedings, fix the standard rent at such amount as, having regard to the provisions of this Act and the circumstances of the ::: Downloaded on - 22/06/2014 23:29:29 ::: *34* app.312.12.scd&gsk.os.db case, the court deems just -
(a) where the court is satisfied that there is no sufficient evidence to ascertain the rent at which the premises were let in any one of the cases mentioned in paragraphs (i) and (ii) of Sub-clause (b) of clause (14) of section 7; of
(b) where by reasons of the premises having been let at one time as a whole or in parts and at another time, in parts or as a whole, or for any other reasons; or
(c) where any premises have been or are let rent-free or, at a nominal rent; or for some consideration in addition to rent; or
(d) where there is any dispute between the landlord and the tenant regarding the amount of standard rent.(2)
If there is any dispute between the landlord and the tenant regarding the amount of permitted increase, the court may determine such amount.
(3) If any application for fixing the standard rent or for determining the permitted increase is made by a tenant,
-
(a) the court shall forthwith specify the amount of rent, or permitted increases which are to be deposited in court by the tenant, and make an order directing the tenant to deposit such amount in court or, at the option of the tenant, make an order to pay to the landlord such amount thereof as the court may specify pending the final decision of the application. A copy of the order shall be served upon the landlord;
(b) out of any amount deposited in the court under clause (a), the court may make an order for payment of such reasonable sum to the landlord towards payment of the rent or increases due to him as it thinks fit;
(c) if the tenant fails to deposit such amount or, as the case may be, to pay such amount thereof to the landlord, his application shall be dismissed.
(4) (a) Where at any stage of a suit for recovery of rent, whether with or without a claim for possession of the premises, the court is satisfied that the rent is excessive and standard rent should be fixed, the court may, and in ::: Downloaded on - 22/06/2014 23:29:29 ::: *35* app.312.12.scd&gsk.os.db any other case, if it appears to the court that it is just and proper to make such an order, the court may make an order directing the tenant to deposit in court forthwith such amount of the rent as the court considers to be reasonable due to the landlord, or at the option of the tenant, an order directing him to pay to the landlord such amount thereof a the court may specify.
(b) the court may further make an order directing the tenant to deposit in court periodically such amount as it considers proper as interim standard rent, or at the option of the tenant, an order to pay to the landlord, such amount thereof as the court may specify, during the pendency of the suit;
(c) the court may also direct that if the tenant fails to comply wth any order made as aforesaid, within such time as may be allowed by it, he shall not be entitled to appear in or defend the suit except with leave of the court, which leave may be granted subject to such terms and conditions as the court may specify.
(5) No appeal shall lie from any order of the court under sub-sections (3) and (4).
(6) An application under this section may be made jointly by all or any of the tenants interested in respect of the premises situated in the same building."
46 Section 9 falling in the same Chapter reads as under:-
"9. No applications for standard rent in certain circumstances. - No court shall, upon an application or in any suit or proceeding, fix the standard rent of any premises under section 8, or entertain any plea that the rent or increases are excessive, if the standard rent or the permitted increase in respect of the same premises have been duly fixed by a competent court on the merits of the case, without any fraud or collusion or an error of the facts, and there has been no structural alterations or change in the amenities or in respect of any other factors which are relevant to the fixation of the standard rent, or change in such increases, thereafter in the premises."::: Downloaded on - 22/06/2014 23:29:29 :::
*36* app.312.12.scd&gsk.os.db
47 Sections 10 to 14 appearing thereafter are for the purposes of
not permitting the landlord to charge anything above the standard rent. At the same time, the Legislature has taken care to allow increase in rent annually and on account of improvement, special addition and special or heavy repairs. The increase in rent on account of payment of rates etc. is also contemplated. Therefore, it has been clarified by Section 13 that any increase of rent under any of the foregoing provisions of Sections 10 and 12 shall not be deemed to be increase for the purpose of Section 10. It is landlord's duty to keep the premises in good repair.48
Chapter-III contains the provision, namely, Section 15 and which Chapter is entitled "Relief Against Forfeiture".
49 Then comes Chapter IV which entitles recovery of possession and by the provisions that are contained in this Chapter. It is clear that so long as the landlord is receiving rent and the tenant is paying, the landlord cannot recover possession. He can recover possession provided there is failure to pay rent. Additionally, subject to the provisions of Section 25 the landlord can recover possession in the event the Court records its satisfaction in terms of Sections 16(1)(a) to 16(1)(n). Thereafter, Section 17 permits recovery of possession for repairs and re-
entry. Section 18 enables the tenant to recover possession for occupation and re-entry. Section 19 provides for recovery of possession for demolition of a building. There is a right conferred in the tenant to give notice to the landlord of his intention to occupy the tenement in new building. That is provided by Section 20. Section 21 provides that the landlord shall intimate to the tenant the date of completion of a building and the tenant's right to occupy the tenement in new building. The recovery of ::: Downloaded on - 22/06/2014 23:29:29 ::: *37* app.312.12.scd&gsk.os.db possession in the case of service tenancy is provided by Section 22.
50 Chapter-V contains special provisions for recovery of possession in certain cases. The members of armed forces of the Union, scientists or their successor-in- interest are entitled to recover possession of the premises required for their occupation. That is provided by Section
23. Similarly, Section 24 gives right to the landlord to recover possession of the premises given on licence on expiry of the same.
51 Chapter-VI contains the provisions regarding sub-tenancies and other matters concerning tenancies. Then comes Chapter VII which contains the provisions regarding jurisdiction of courts, suits, appeals, practice and procedure. This chapter contains Section 33 which provides for jurisdiction of the courts. Section 33 reads as under:-
"33. Jurisdiction of Courts. -
(1) Notwithstanding anything contained in any law for the time being in force, but subject to the provisions of Chapter VIII, and notwithstanding that by reason of the amount of the claim or for any other reason, the suit or proceeding would not, but for this provision, be within its jurisdiction, -
(a) in Brihan Mumbai, the Court of Small Causes, Mumbai,
(b) in any area for which a Court of Small Causes is established under the Provincial Small Causes Courts Act, 1887, (IX of 1887), such court, and
(c) elsewhere, the court of the Civil Judge (Junior Division) having jurisdiction in the area in which the premises are situate or, if there is no such Civil Judge, the Court of the Civil Judge(Senior Division) having ordinary jurisdiction, shall have jurisdiction to entertain and try and suit or proceeding between a landlord and a tenant relating to the recovery of rent or possession of any premises and to decide any application made under this Act(other than the applications which are to be ::: Downloaded on - 22/06/2014 23:29:29 ::: *38* app.312.12.scd&gsk.os.db decided by the State Government or an officer authorised by it or the Competent Authority); and subject to the provisions of sub-section (2), no other court shall have jurisdiction to entertain any such suit, proceeding, or application or to deal with such claim or question.
(2)(a) Notwithstanding anything contained in clause (b) of sub-section(1), the District Court may at any stage withdraw any such suit, proceeding or application pending in a Court of Small Causes established for any area under the Provincial Small Causes Courts Act, 1887, (IX of 1887), and transfer the same for trial or disposal to the Court of the Civil Judge (Senior Division)having ordinary jurisdiction in such area;
(b) where any suit, proceeding or application has been withdrawn under clause (a), the Court of the Civil Judge (Senior Division) which thereafter tries such suit, proceeding or application, as the case may be, may either re-try it or proceed from the stage at which it was withdrawn;
(c) The Court of the Civil Judge trying any suit, proceeding or application withdrawn under clause (a) from the Court of Small Causes, shall, for purposes of such suit, proceeding or application, as the case may be, be deemed to be the Court of Small Causes."
55 Section 34 appearing in Chapter VII provides for appeal. Section 35 falling in this chapter reads as under:-
"35. Saving of suit involving title.-Nothing contained in sections 33 and 34 shall be deemed to bar a party to a suit, proceeding or appeal mentioned therein in which a question of title to premises arises and is determined, from suing in a competent court to establish, his title to such premises."
56 A bare perusal of Section 35 reveals that nothing contained in Sections 33 and 34 shall be deemed to bar a party to a suit, proceeding or ::: Downloaded on - 22/06/2014 23:29:29 ::: *39* app.312.12.scd&gsk.os.db appeal mentioned therein, in which a question of title to premises arises and is determined, from suing in a competent court to establish, his title to such premises. This section throws further light on the legislative intent. It shows that suits involving title are saved and they can be instituted in a competent Court. Section 36 also has some bearing on the issue raised before us and therefore, is required to be reproduced. Section 36 reads as under:-
"36. Compensation in respect of proceedings which are not bona fide or are false, frivolous or vexatious.- If the court finds that any suit, proceeding or application instituted or made before it, is not instituted, or made, bona fide or is false, frivolous or vexatious, the court may, after hearing the plaintiff or applicant and for reasons to be recorded, order that compensation, not exceeding two thousand rupees, be paid by such plaintiff or applicant to the defendant or opponent, as the case may be."
57 A bare perusal of Sections 33, 34, 35 and 36 would make it clear that even if the word "a court" is appearing in some of the provisions in the MRC Act, yet in Section 35 the words used are "from suing in a competent court". This will have some impact on the argument of Mr.Madon that the word "court" appearing in Section 7(15) of the MRC Act and several other provisions of the statute must be construed with reference to Section 33 and so construed and interpreted it would mean only the Court referred to in Section 33 and none other. Mr.Madon argues and with some vehemence that it cannot be the intent of the Legislature that the jurisdiction of the courts for the purpose of suits, appeals is conferred in such a way as would direct the parties to go to several courts and not the court of exclusive jurisdiction. His argument, thus, is that once the Legislature confers exclusive jurisdiction on the courts specified in ::: Downloaded on - 22/06/2014 23:29:29 ::: *40* app.312.12.scd&gsk.os.db Section 33, then, it is to that Court alone that the parties must approach particularly in the light of the language in Section 33(1)(c) and sub-
section (2) thereof. We will consider this argument a little later.
58 Chapter VIII provides for summary disposal of certain applications. The provisions of the Chapter have been given overriding effect as would appear clearly from Section 39 appearing therein. That is because there is a competent authority to whom the applications under Sections 22, 23 or 24 have to be made to evict a tenant or licencee. In this chapter one finds Sections 39 to 52. A very important Section appears in Chapter VIII and that is Section 47. That section bars jurisdiction. Section 47 reads as under:-
"47. Bar of jurisdiction.- Save as otherwise expressly provided in this act, no civil court shall have jurisdiction in respect of any matter which the Competent Authority or the State Government or an officer authorised by it is empowered by or under this act, to decide, and no injunction shall be granted by any court or other authority in respect of any action taken or to be taken in pursuance of any power so conferred on the Competent Authority or the State Government or such officer."
59 A bare perusal of Chapter VIII would indicate that in relation to the applications and which are referred to in Section 42 the Act enacts a complete scheme from Sections 39 to 46 and from 48 to 52. That Chapter being a complete Code to deal with certain applications and provides for their summary disposal, thus ousts the jurisdiction of the civil court. The words "no civil court shall have jurisdiction in respect of any matter which the Competent Authority or the State Government or an officer authorised by it is empowered by or under this Act to decide" enact ::: Downloaded on - 22/06/2014 23:29:29 ::: *41* app.312.12.scd&gsk.os.db a bar and ousts the jurisdiction of a civil court specifically. That indicates the intent of the legislature and which is quite contrary to that suggested by Shri Madon. Section 33 in contrast confers jurisdiction in Brihan Mumbai in the Court of Small Causes, in other areas for which the Court of Small Causes is established under the Provincial Small Causes Courts Act, 1887 in such courts and elsewhere in the Court of Civil Judge Junior Division or Senior Division having ordinary jurisdiction, for entertaining and trying any suit or proceeding. There is a bar enacted in Section 33 inasmuch as notwithstanding anything contained in any law for the time being in force, but subject to the provisions of Chapter VIII and irrespective of the amount of claim or any other reason, a suit or proceeding which is referred to in clause (c) of sub-section (1) of Section 33 between the landlord and tenant relating to recovery of rent or possession in the premises and to decide any application made under the MRC Act other than the applications which are to be decided by the State Government or officer authorized by it or a competent authority and subject to the provisions of sub-section (2), no other court shall have jurisdiction to entertain any class of matters mentioned in this clause. However, it is to be remembered that jurisdiction which is referred to in Section 33 is the jurisdiction of the existing courts. The MRC Act does not create any court. The MRC Act seeks to confer jurisdiction on the pre- existing courts and to decide the suits or proceedings which but for this provision be not within its jurisdiction. All such words as are referred to by us are crucial. Thus, an ordinary civil court would have jurisdiction to entertain and try a suit or proceeding and to decide any application, but for Section 33. Section 33 confers jurisdiction in certain courts specified therein. Thus, in Mumbai it is the Court of Small Causes established and functional under the Presidency Small Causes Courts Act, 1882. Elsewhere if there is a Court of Small Causes established under the ::: Downloaded on - 22/06/2014 23:29:29 ::: *42* app.312.12.scd&gsk.os.db Provincial Small Causes Courts Act, 1887, that court has jurisdiction. If in any other area a Court of Small Causes is not established, then, the Court of Civil Judge Junior Division having jurisdiction in the area in which the premises are situate or if there is no such civil judge, then, the court of Civil Judge Senior Division having an ordinary jurisdiction, shall have jurisdiction to entertain and try any suit or proceeding. However, that suit or proceeding must be between the landlord and tenant, it must be relating to recovery of rent or possession of any premises and it must also be an application under the MRC Act other than an application which is to be decided by the State Government or an officer authorized by it or a competent authority. These are the proceedings under Chapter VIII and which in turn refer to Sections 22 to 24 of the MRC Act.
60 Mr.Madon contends that the words in clause (c) of sub- section (1) of Section 33 and to decide any application made under this Act would include in its import the suit filed in this Court and which is subject matter of the present Appeal. Mr.Madon's argument overlooks the fundamental and basic principle of statutory interpretation that the jurisdiction of an ordinary civil court should not be presumed to be ousted unless there is a specific bar enacted or such bar can be implied from reading of the statute.
61 In the present case we are not concerned with an absolute bar to the jurisdiction of an ordinary civil court. In the present case, we are considering a bar which is enacted in Section 33(1) and which one finds to be of limited nature.
62 It is further well settled that existence of jurisdiction in civil court to decide a question of civil nature being a general rule and an ::: Downloaded on - 22/06/2014 23:29:29 ::: *43* app.312.12.scd&gsk.os.db exclusion being an exception, the burden of proof to show that jurisdiction is excluded in any particular case is on a party raising such contention.
This principle is too well settled to require any reference to any precedent.
However, one can easily refer to the judgment of the Privy Council in the case of Ramayya v. Lakshmi Narayana reported in AIR 1934 Privy Council 84. Therefore, the provisions like Section 33 will have to be strictly construed.
In the present case as well the bar of jurisdiction to entertain and try the suit has been raised by the Appellants. It was entirely upon them to prove the lack of jurisdiction in this Court to entertain and try the present Suit.
In this context a reference can usefully be made to the judgment of the Honourable Supreme Court in two cases. In the case of Raizada Topandas and another v/s M/s Gorakhram Gokalchand reported in AIR 1964 SC 1348, in the context of Section 28 of the Bombay Rent Act the Honourable Supreme Court held as under:-
"6. The Bombay Rents, Hotel and Lodging House Rates Control Act, 1947 was enacted to amend and consolidate the law relating to the control of rents and repairs of certain premises, of rates of hotels and lodging houses and of evictions. In Part II of the Act there are provisions which make rent in excess of standard rent illegal, provisions relating to increase of rent, provisions as to when a landlord may recover possession, when a sub-tenant becomes a tenant, unlawful charges by landlord etc. All these proceed on the footing that there is or was, at the inception, a relation of landlord and tenant between the parties. In the same Part occur Sections 28, 29 and 29-A. Section 28 which we shall presently read deals with jurisdiction of courts; s. 29 deals with appeals, and s. 29-A is a section which saves suits involving title. The particular section the interpretation of which is in question before us is s. 28 and we shall read only sub-s. (1) thereof in so far as it is relevant for our purpose. This sub-section reads...
"28. (1) Notwithstanding anything contained in any law and notwithstanding that by reason of the ::: Downloaded on - 22/06/2014 23:29:29 ::: *44* app.312.12.scd&gsk.os.db amount of the claim or for any other reason, the suit or proceeding would not, but for this provision, be within its jurisdiction.
(a) In Greater Bombay, the Court of Small Causes, Bombay, (aa) xx xx xx
(b) xx xx xx ............. shall have jurisdiction to entertain and try any suit or proceeding between a landlord and a tenant relating to the recovery of rent or possession of any premises to which any of the provisions of this Part apply and to decide any application made under this Act and to deal with any claim or question arising out of this Act or any of its provisions and subject to the provisions of sub-section (2), no other court shall have jurisdiction to entertain any suit, proceeding or application or to deal with such claim or question."
S.29-A also has some relevance and may be set out here--
"Nothing contained in section 28 or 29 shall be deemed to bar a party to a suit, proceeding or appeal mentioned therein in which a question of title to premises arises and is determined, from suing in a competent court to establish his title to such premises."
Leaving out what is unnecessary for our purpose S. 28(1) states that notwithstanding anything contained in any law and notwithstanding that by reason of the amount of the claim or for any other reason, the suit or proceeding would not, but for this provision, be within its jurisdiction, the Court of Small Causes in Greater Bombay shall have jurisdiction to entertain and try any suit or proceeding between a landlord and a tenant relating to the recovery of rent or possession of any premises to which any of the provisions of this Part (meaning thereby Part II) apply and to decide any application made under the Act and to deal with any claim or question arising out of the Act or any of its provisions and no other court shall have jurisdiction to entertain any such suit, proceeding or application or to deal with any such claim or question. It is to be noticed ::: Downloaded on - 22/06/2014 23:29:29 ::: *45* app.312.12.scd&gsk.os.db that the operative part of the sub-section refers to two matters : (a) any suit or proceeding between a landlord and a tenant relating to the recovery of rent or possession of any premises to which any of the provisions of Part II apply and (b) any application made under the Act or any claim or question arising out of this Act or any of its provisions. What is the true effect of sub-s. (1) of s. 28 with regard to the aforesaid two matters ? Does it mean that if the defendant raises a claim or question as to the existence of a relationship of landlord and tenant between him and the plaintiff, the jurisdiction of the City Civil Court is ousted even though the plaintiff pleads that there is no such relationship, and the only court which has exclusive jurisdiction to try the suit is the Court of Small Causes, Bombay ? That is the question before us.
7. In answering this question it is perhaps necessary to refer to the general principle which admittedly governs the question of jurisdiction at the inception of suits. This general principle has been well explained in the Full Bench decision of the Allahabad High Court, Ananti v.
Chhannu, ILR 52 ALL 501 : (AIR 1930 All 193) (FB) and has not been disputed before us. It was observed there :
"The plaintiff chooses his forum and files his suit. If he establishes the correctness of his facts he will get his relief from the forum chosen. If............. he frames his suit in a manner not warranted by the facts, and goes for his relief to a court which cannot grant him relief on the true facts, he will have his suit dismissed. Then there will be no question of returning the plaint for presentation to the proper court, for the plaint, as framed, would not justify the other kind of court to grant him the relief......... If it is found, on a trial on the merits so far as this issue of jurisdiction goes, that the facts alleged by the plaintiff are not true and the facts alleged by the defendants are true, and that the case is not cognizable by the court, there will be two kinds of orders to be passed. If the jurisdiction is only one relating to territorial limits or pecuniary limits, the plaint will be ordered to be returned for presentation to ::: Downloaded on - 22/06/2014 23:29:29 ::: *46* app.312.12.scd&gsk.os.db the proper court. If, on the other hand, it is found that, having regard to the nature of the suit, it not cognizable by the class of court to which the court belongs, the plaintiff's suit will have to be dismissed in its entirety."
Having regard to the general principle stated above, we think that the view taken by the High Court in this case is correct. S. 28 no doubt gives exclusive jurisdiction to the Court of Small Causes to entertain and try a suit or proceeding between a landlord and a tenant relating to recovery of rent or possession of any premises to which any of the provisions of Part II apply; it also gives exclusive jurisdiction to decide any application under the Act and any claim or question arising out of the Act or any of its provisions - all this notwithstanding anything contained in any other law. The argument of learned counsel for the appellants is that the section in effect states that notwithstanding any general principle, all claims or questions under the Act shall be tried exclusively by the courts mentioned in the section, e.g. the Court of Small Causes in Greater Bombay, and it does not matter whether the claim or question is raised by the plaintiff or the defendant. The argument is plausible, but appears to us to be untenable on a careful scrutiny. We do not think that the section says or intends to say that the plea of the defendant will determine or change the forum. It proceeds on the basis that exclusive jurisdiction is conferred on certain courts to decide all questions or claims under the Act as to parties between whom there is or was a relationship of landlord and tenant. It does not invest those courts with exclusive power to try questions of title, such as questions as between the rightful owner and a trespasser or a licensee, for such questions do not arise under the Act. If, therefore, the plaintiff in his plaint does not admit a relation which would attract any of the provisions of the Act on which the exclusive jurisdiction given under s. 28 depends, we do not think that the defendant by his plea can force the plaintiff to go to a forum where on his averments he cannot go. The interpretation canvassed for by the appellants will give rise to anomalous results; for example, the defendant may in every case force the ::: Downloaded on - 22/06/2014 23:29:29 ::: *47* app.312.12.scd&gsk.os.db plaintiff to go to the Court of Small Causes and secondly, if the Court of Small Causes finds against the defendant's plea, the plaint may have to be returned for presentation to the proper court for a second time. Learned counsel for the appellants has argued in the alternative that the Court of Small Causes need not return the plaint a second time, for his contention is that that Court has "exclusive" jurisdiction to decide the case whenever a claim is made under the Act even though the claim is found to be false on trial. We do not think that this contention can be accepted as correct, for to do so would be to hold that the Court of Small Causes has exclusive jurisdiction to decide question of title, which is clearly negatived by s. 29-A. Anomalous results may not be a conclusive argument, but when one has regard to the provisions in Part II it seems reasonably clear that the exclusive jurisdiction conferred by s. 28 is really dependent on an existing or previous relationship of landlord and tenant and on claims arising under the Act as between such parties.
8. Dealing with a similar argument in Govindram Salamatrai, 53 Bom LR 386 : (AIR 1951 Bom 390) Chagla, C.J. said :
"There can be no doubt that when a plaintiff files a suit against a defendant alleging that he is his licensee, it is a suit which cannot be entertained and tried by the Small Causes Court because it is not a suit between a landlord and a tenant, and judging by the plaint no question arises out of the Rent Control Act or any of its provisions which would have to be determined on the plaint as it stands......... It cannot be suggested that the plaintiff should anticipate any defence that might be taken up by the defendant that he is a tenant or that the initial jurisdiction which the Court had or which the Court lacked should be controlled or affected by any subsequent contention that might be taken up by the defendant. The jurisdiction of a Court is normally and ordinarily to be determined at the time of the inception of a suit. Therefore when a party puts a plaint on file, it is at that time that the Court has to consider whether the Court had jurisdiction to entertain and try the suit ::: Downloaded on - 22/06/2014 23:29:29 ::: *48* app.312.12.scd&gsk.os.db or not. But it is argued that although the Court might have had jurisdiction when the suit was filed, as soon as the defendant raised the contention that he was a tenant the Court ceases to have jurisdiction to try that suit and that contention could only be disposed of by the Small Causes Court by virtue of the provisions of s. 28.
Therefore, the question that I have to address myself to is whether the question as to whether the defendant is a tenant or a licensee is a question which arises out of the Act or any of its provisions. Really, this question is not a question that has anything to do with the Act or any of its provisions. It is a question which is collateral and which has got to be decided before it could be said that the Act has any application at all."
We are in agreement with these observations, and we do not think that s. 28 in its true scope and ....... effect makes a departure from the general principle referred to earlier by us. Nor do we think that the right of appeal given by s. 29 affects the position in any way. In respect of a decision given by a Court exercising jurisdiction under s. 28, an appeal is provided for in certain circumstances under s. 29. This does not mean that s. 28 has the effect contended for on behalf of the appellants.
9. As to the decision of this Court in Babulal Bhuramal, 1959 SCP 367 : (AIR 1958 SC 677) we do not think that it assists the appellants. We consider that the Bombay High Court correctly understood it in 61 Bom LR 1087. In Babulal Bhuramal's case, 1959 SCR 367 :
(AIR 1958 SC 677) the facts were these. A landlord after giving a notice to quit to his tenant on December 6, 1947, filed a suit against him in the Court of Small Causes, Bombay, joining to the suit two other persons who were alleged to be sub-tenants of the tenant. The landlord's case was that the tenancy of his tenant was validly terminated and he was entitled to evict his tenant; that the alleged sub-tenants of the tenant were trespassers who had no right to be on the premises. The suit succeeded in the Small Causes Court, the Court holding that the sub-tenants were not lawful sub- tenants, the sub-letting by the tenant to them being ::: Downloaded on - 22/06/2014 23:29:30 ::: *49* app.312.12.scd&gsk.os.db contrary to law. The Small Causes Court, therefore, passed a decree against the plaintiff and the alleged sub-
tenants. Thereafter, the tenant as plaintiff No. 1 and the alleged sub-tenants as plaintiffs Nos. 2 and 3 filed a suit against the landlord in the City Civil Court for a declaration that plaintiff No. 1 was a tenant of the defendant and was entitled to protection under the Rent Act and that plaintiffs Nos. 2 and 3 were lawful sub- tenants of plaintiffs No. 1 and were entitled to possession and occupation of the premises as sub-tenants thereof. A question was raised in the City Civil Court as to whether the City Civil Court had jurisdiction to entertain the suit. The City Civil Court held that it had jurisdiction to entertain the suit, but dismissed it on merits. In the appeal which was filed in the High Court, the High Court dismissed the appeal holding that the City Civil Court had no jurisdiction to entertain the suit and, therefore, the suit filed by the plaintiffs in the City Civil Court was not maintainable. It was from this decision of the High Court that an appeal was filed in the Supreme Court and the question which the Supreme Court had to consider was whether the second suit filed by the plaintiffs was within the jurisdiction of the City Civil Court. It was urged before the Supreme Court that the suit was maintainable under s. 29-A of the Bombay Rent Act which provided that nothing contained in Sections 28 or 29 should be deemed to bar a party to a suit, proceeding or appeal mentioned therein in which a question of title to premises arises and is determined, from suing in a competent Court to establish his title to such premises. The Supreme Court held that a suit which was competent to establish title under s. 29A was a suit to establish title de hors the Bombay Rent Act and not a suit which sought to establish title which required to be established under the Rent Act itself. It is obvious that in the suit before the Court of Small Causes, it was open to the tenant to claim protection under the Act and by reason of s. 28 no other Court had jurisdiction to try that claim; therefore, the Supreme Court held that s. 28 barred the second suit and s. 29-A did not save it, because it only saved a suit to establish title de hors the Act. The observations made in that decision on which ::: Downloaded on - 22/06/2014 23:29:30 ::: *50* app.312.12.scd&gsk.os.db the present appellants rely were these :
"Do the provisions of s. 28 cover a case where in a suit one party alleges that he is the landlord and denies that the other is his tenant or vice versa and the relief asked for in the suit is in the nature of a claim which arises out of the Act or any of the provisions ? The answer must be in the affirmative on a reasonable interpretation of s. 28."
We agree with the High Court that these observation merely show this that in order to decide whether a suit comes within the purview of s. 28 what must be considered is what the suit as framed in substance is and what the relief claimed therein is. If the suit framed is by a landlord or a tenant and the relief asked for is in the nature of a claim which arises out of the Act or any of its provisions, then only and not otherwise will it be covered by s. 28. The High Court has rightly said :
"A suit which is essentially one between the landlord and tenant does not cease to be such a suit merely because the defendant denies the claim of the plaintiff. In the same way, a suit which is not between the landlord and tenant and in which judging by the plaint no claim or question arises out of the Rent Act or any of its provisions does not become a suit covered by the provisions of s. 28 of the Act as soon as the defendant raises a contention that he is a tenant."
For the reasons given above, we hold that the City Civil Court had jurisdiction to entertain the suit and the High Court correctly came to that conclusion. Therefore, the appeal fails and is dismissed with costs."
63 To somewhat similar effect are the conclusions recorded in the judgment of a Full Bench of this Court in the case of Dattatraya v/s Jairam, reported in A.I.R. 1965 (Bombay) 177. In AIR 1967 SC 369 (Vasudev Gopalkrishna Tambwekar v/s Board of Liquidators, Happy Home Cooperative Housing Society Limited), the Honourable Supreme Court held as under:-
::: Downloaded on - 22/06/2014 23:29:30 :::*51* app.312.12.scd&gsk.os.db "10. Alternatively, it was contended that even if the Society claimed to obtain an order for possession on some footing other than the relationship of landlord and tenant, when the appellant raised the contention that he was a tenant and the relationship of landlord and tenant was put into issue, the Court of Small Causes, Bombay, alone was competent to decide that question. Section 28 of Bombay Act 57 of 1947 excludes the jurisdiction of all courts other than the Court of Small Causes to try any suit, proceeding or application between a landlord and tenant and to deal with any claims or questions as are referred to in the section. Even if it be granted that an arbitrator appointed under the Bombay Co-operative Societies Act is a Court, - on this question we do not deem it necessary to express any opinion - in order that his jurisdiction be excluded the proceeding before him must be between landlord and tenant, and relating to the recovery of rent or possession of any premises to which the provisions of Part II of the Act apply. The exclusive jurisdiction of the Court of Small Clauses arises only if the person invoking the jurisdiction of the Court alleges that the other party is a tenant or a landlord and the question is one which is one which is referred to in s. 28. Where the person so invoking does not set up the claim that the other party is a tenant or a landlord the defendant is not entitled to displace the jurisdiction of the ordinary court by an allegation that he stands in that relation qua the other and on that ground the Court has no jurisdiction to try the suit or proceeding or an application. There is nothing in the judgment of this Court in Babulal Bhuramal's Case AIR 1958 SC 677 which supports the view that by merely setting up a plea that he is a tenant in respect of the premises in dispute, the jurisdiction of the ordinary Courts to decide a suit, proceeding or application would be displaced. The facts which gave rise to the appeal decided by this Court in Babulal's case AIR 1958 SC 677 may be noticed. The landlord filed in the Court of Small Causes a suit in ejectment against the tenant, after terminating the tenancy, and to that suit impleaded two persons who the landlord alleged had no right to be on the premises. The Court held that those ::: Downloaded on - 22/06/2014 23:29:30 ::: *52* app.312.12.scd&gsk.os.db two persons were not lawful sub-tenants and had no right to remain in the premises and passed a decree in ejectment against the three defendants. The three defendants then commenced an action in the Bombay City Court for a declaration that the first of them was a tenant of the landlord, and the other two were lawful sub-tenants and were entitled to the protection of Bombay Act 57 of 1947. The City Court held that it had jurisdiction to try the suit, but dismissed it on the merits.
The High Court of Bombay confirmed the decree holding that the City Court had no jurisdiction to entertain the suit, but expressed no opinion on the merits. This Court affirmed the view of the High Court. The Court in that case was considering the true effect s. 28 of Bombay Act 57 of 1947 in the light of the averments made by the plaintiffs who alleged that they were tenants and the denial by the defendant landlord of the tenancy set up. The Court observed on p. 681 :
"The suit did not cease to be a suit between a landlord and a tenant merely because the defendants denied the claim of the plaintiffs. Whether the plaintiffs were the tenants would be a claim or question arising out of the Act or any of its provisions which had to be dealt with by the Court trying the suit. On a proper interpretation of the provisions of s. 28 one suit contemplated in that section is not only a suit between a landlord and a tenant in which that relationship is admitted but also a suit in which it is claimed that the relationship of landlord and a tenant within the meaning of the Act subsists between the parties."
There is nothing the these observations to support the plea that he jurisdiction of the ordinary courts to try a suit or proceeding relating to recovery of possession of any premises to which Part II of the Act applies is displaced as soon as the contesting party raises a plea about the relationship of a landlord and a tenant."
64 Same view appears to have been reiterated in a later decision in the case of Hiralal Vallabhram v/s Sheth Kasturbhai Lalbhai reported in ::: Downloaded on - 22/06/2014 23:29:30 ::: *53* app.312.12.scd&gsk.os.db AIR 1967 SC 1853. In paragraph 6 thereof this is what is held:-
"6. We do not think it necessary to decide the question of jurisdiction of the High Court under s. 115 of the Code of the Civil Procedure in the circumstance of this case, for we have come to the conclusion that though the question of jurisdiction had not been urged before the High Court it stares one in the face on the judgment of the appellate court. We are satisfied that the appellate court had no jurisdiction to pass a decree for ejectment against the present appellant in the manner in which it did so. We have already indicated that the appellate court took the curious view that the present appellant was a trespasser. Now this was no one's case in the present litigation. The respondents alleged that the present appellant was a sub-tenant. The present appellant contended that he was an assignee while two of the tenants-in-chief contended that he was their partner. In the circumstances it is curious that the appellate court came to the conclusion that he was a trespasser. But assuming that finding, if correct, cannot be assailed in revision under s. 115 of the Code of Civil Procedure, a question of jurisdiction of the appellate court to pass a decree for ejectment immediately arises on the finding that present appellant was a trespasser.
The suit was brought in the court of the Judge Small Causes under s. 28 of the Act. That section gives power to the Small Cause Court to proceed to evict a tenant (along with a sub-tenant would also go) provided the provisions contained either in s. 12 or s. 13 of the Act are satisfied. But when the appellate court held that the present appellant was trespasser, there was no jurisdiction under the Act to pass decree ejectment against a trespasser. Such a decree against the trespasser could only be passed by a regular civil court in a suit brought under the Code of Civil Procedure. It could not be passed by a Judge, Small Causes Court, before whom a suit for eviction as a special forum is maintainable under s. 28 of the Act. Therefore when the appellate court after holding that the appellant was a trespasser went on to order his eviction on that ground it had no jurisdiction to do so in a suit brought under s. 28 of the Act. It is true that the appellate court was the court of ::: Downloaded on - 22/06/2014 23:29:30 ::: *54* app.312.12.scd&gsk.os.db an Extra Assistant Judge, but its jurisdiction could not be wider than that of the trial court and it would be equally circumscribed within the four corners of s. 28 of the Act. Though this point was not raised in the High Court, it is so obvious that we have permitted the appellant to raise it before us. We are of opinion that on the finding that the appellant was a trespasser, the appellate court had no jurisdiction to order his ejectment in a suit brought under s. 28 of the Act."
65 That the MRC Act has not established any new court, but has conferred on the existing courts a special jurisdiction to try the suits between the landlord and tenant, is thus the underlying principle and which has been settled by the Honourable Supreme Court in one of the old decisions, namely, Khemchand Dayalji and Company v/s Mohammadbhai Chandbhai reported in AIR 1970 SC 102.
66 Mr.Madon's argument, therefore, overlooks the fact that what is mentioned in Section 7(15) of the MRC Act, is not decisive of the gamut of the provisions conferring jurisdiction in the Court referred to in Section
33. 67 In that regard one must also note the argument of Mr.Devitre that there is a difference in the language of Section 33 of the MRC Act and Section 28 of the Bombay Rent Act (old Act). Mr.Devitre submits that Section 28(1) and below clause (b) contained similar phraseology, but in addition thereto what were appearing are the following words:-
"and to deal with any claim or question arising out of this Act or any of its provisions".
Mr.Devitre submits that Section 28(1) of the old Act has to be ::: Downloaded on - 22/06/2014 23:29:30 ::: *55* app.312.12.scd&gsk.os.db juxtaposed with Section 33(1)(c) of the MRC Act where the Legislature has omitted the above words. Mr.Devitre submits that the difference between Section 28(1) of the old Act and Section 33(1)(c) of the MRC Act must not be lost sight of and cannot be brushed aside. We are inclined to agree with him.
68 As noted above it is clear that the MRC Act is an unifying and consolidating statute. It seeks to amend the law relating to control of rent and repairs to certain premises and of eviction. The principles of statutory interpretation of a unifying and consolidating statute and construction of words therein are equally well settled. In "Principles of Statutory Interpretation" by Justice G.P.Singh these principles are succinctly stated as under:-
"A consolidating statute is often not a mere compilation of earlier enactments. "The very object of consolidation", said LORD WATSON, "is to collect the statutory law bearing upon a particular subject, and to bring it down to date, in order that it may form a useful Code applicable to the circumstances existing at the time when the consolidating Act is passed." The process of consolidation involves co-ordination and simplification of former enactments resulting in modernisation of language with a view to make it applicable to changed circumstances. It is not permissible to construe a section in a consolidating Act in such cases with reference to circumstances existing at the time when it was first enacted in a former Act. A consolidating Act may further be an amending Act. This additional purpose is usually indicated in the preamble or in the long title by use of the words 'An Act to consolidate and amend'. It is not a sound canon of construction to refer to the provisions in repealed statutes when the consolidating statute contains enactment dealing with the same subject in different terms. Even when a section from an earlier Act is repeated in a consolidation Act in identical terms the framework in which it is placed may be ::: Downloaded on - 22/06/2014 23:29:30 ::: *56* app.312.12.scd&gsk.os.db different. Referring to such a situation LORD WRENBURY said: "I derive little, if any, assistance from the knowledge that, for instance, a particular section is in terms identical with a section which as the law previously stood was found in framework different from that in which it is now found. To ascertain the present law it is necessary to consider such a section in the framework in which it now stands. In other words, I have to consider the statute law as it is." For the purpose of construing a statute which is a consolidating as well as an amending Act, the proper course is to have a "reasonable interpretation of its provisions" and to apply the normal rule of construction "so as to give each word the meaning proper to it in its context." The rule enunciated by LORD HERSCHELL with reference to codifying statutes can be usefully applied to a consolidating and Amending statute. The Supreme Court has applied the said rule for construing the Indian Income-tax Act, 1922, which was an Act to consolidate and amend the law relating to income-tax and super- tax. The rule has also been applied for construing the Indian Contract Act, 1872 which defines and amends certain parts of the law relating to contracts; and for construing the Arbitration Act, 1940, which is an Act to consolidate and amend the law relating to arbitration. It may here be mentioned that observation of CHITTY, J., that LORD HERSCHELL's rule has no application to any consolidating statute is incorrect. The statute with which CHITTY, J. was concerned was a consolidating as well as amending statute and the distinction drawn by him has been rightly criticised as obscure."
69 Equally well settled is the principle that the Parliament or the competent legislature in this case was fully aware of the controversy generated by the interpretation of Section 28 of the old Act. As is urged by Mr.Madon, there was an argument raised with regard to construction of Section 28 of the old Act and which found acceptance in the decision of the Honourable Supreme Court in the case of Sushila Kashinath Dhonde ::: Downloaded on - 22/06/2014 23:29:30 ::: *57* app.312.12.scd&gsk.os.db and others v/s Harilal Govindji Bhogani and others reported in AIR 1971 SC 1495. Equally, as is urged by Mr.Devitre, despite the wide words appearing in Section 28 of the old Act and which we have reproduced above, there was a line of decisions which took the view that the broad words have to be construed qua the relationship and that of a landlord and tenant. It is only the pre-existing relationship of a landlord and tenant which would give jurisdiction to the courts specified and enumerated in Section 28 of the old Act and not otherwise. In these circumstances we cannot attribute to the Legislature total ignorance of this legal controversy.
In consolidating and unifying the Statutes so as to enact a comprehensive Rent Control Legislation the Legislature was aware of this controversy. It, therefore, decided to speak in clearest terms. It cannot be urged that the Legislature was unaware of such matters. The Legislature being fully aware of the controversy decided to omit certain words and which omission must be borne in mind.
70 In the same well respected and acknowledged work, namely, Principles of Statutory Interpretation, Justice G.P. Singh observes that the legislative intent in such cases has to be noted. The learned Author says that numerous illustrations can be found where the Legislature not happy with a particular construction placed on the enactment has changed the same by amending the Statute and that is specially true of tax and welfare legislation. Alteration of law by the Legislature, however, does not give rise to any inference that the previous decisions were wrong or that those who proposed alteration were of that opinion. But, when judicial decisions have taken two different views of the statutory provisions which are re-enacted with certain modifications, the change in language may be suggestive of acceptance of one view by the Legislature and the meaning consistent with that view should be placed on the provision enacted. Thus, ::: Downloaded on - 22/06/2014 23:29:30 ::: *58* app.312.12.scd&gsk.os.db one has to proceed on the assumption that the Legislature being aware of the controversy generated because of presence of wide words in Section 28(1) of the old Act, decided to omit them intentionally while enacting Section 33 of the MRC Act, 1999. One has to respect these views and wishes of the Legislature as that is presumed to reflect the will of the people. It is too well settled to be reiterated that when the Legislature sits to enact and make a law it does so because it is necessary. It does not sit to make the law only because it has nothing else to do or it intends to pass time. The Legislature steps in and to make the law because there is need to do so. The Legislature intervenes to change the law or amend it or consolidate or unify it only because of felt need of times. This principle is firmly established to require a detailed reference to any precedents.
Suffice it to refer to the judgments of the Hon'ble Supreme Court reported in A.I.R. 1987 SC 1023 (R.B.I. v/s Peerless G.F. and Investment Co. Ltd. See para 33 at page 1042) and Utkal Contractors and Joinary Pvt. Ltd. & ors. v/s State of Orissa and ors., reported in A.I.R. 1987 SC 1454. The Hon'ble Court has held precisely in these words in paragraphs 9 to 13 (see pages 1459 to 1460). As is reflected in the Preamble to the MRC Act, 1999, it is clear that three different Rent Control Legislations operating within one State resulted in uncertainty, unpredictability and confusion. It was surprising that in a single State, three different laws with distinct forums and procedures for resolution of disputes were allowed to operate and for decades. That resulted in complications and contradictions. That gave rise to a large scale misuse and abuse of the welfare legislations and particularly on account of the conflicting construction of the law. It was necessary to bring in harmony, consistency and coordination in the Rent Control Legislations operating in several parts and regions of the State, that triggered the legislative exercise undertaken in the present case. We are, therefore, required to take a view in consonance with this legislative ::: Downloaded on - 22/06/2014 23:29:30 ::: *59* app.312.12.scd&gsk.os.db approach and intent. We cannot be unmindful of the fact that the Legislature did not intend to confer jurisdiction in the courts specified in Section 33 of the MRC Act to decide all claims or questions irrespective of the relationship of a landlord and tenant. The Legislature created special jurisdiction in the existing Courts or rather maintained it throughout the State in order to deal with the claims or questions arising out of relationship of landlord and tenant.
71 That is evident by the language of Section 33 of the MRC Act.
Though there are two non obstante clauses in the same sub-section (1), yet jurisdiction is conferred in the courts to entertain and try any suit or proceeding between the landlord and tenant relating to the recovery of rent or possession of any premises and to decide any application made under the MRC Act, but which is referable to and connected with the relationship of landlord and tenant. The words "no other courts shall have jurisdiction to entertain any such suit, proceeding or application or to deal with such claim or question" as emphasized by Mr.Madon and Mr.Devitre both, therefore, must be seen with reference to this relationship. They cannot be construed de-hors the relationship of landlord and tenant and so as to confer jurisdiction to entertain and try any suit, proceeding or application or to deal with any claim or question having no connection with the relationship. That would enlarge the ambit and scope of the special jurisdiction and to include therein a suit, proceeding or application dealing with a claim or question purporting to be one under the MRC Act, but not based on the relationship of landlord and tenant.
72 We are of the opinion that all provisions of the MRC Act have to be read together and harmoniously. Reading of the provisions in such manner would demonstrate that the Legislature was aware of the ::: Downloaded on - 22/06/2014 23:29:30 ::: *60* app.312.12.scd&gsk.os.db confusion created by contradictory or conflicting judicial opinions and views. It decided to make a unifying statute and while making such a statute, consolidating the existing Acts and making them into one and single enactment the Legislature further intended that there should be forums conferred with jurisdiction and specially to deal with the disputes arising out of the relationship of landlord and tenant. As is well settled the Rent Control Legislation does not create the relationship of landlord and tenant. It merely seeks to regulate it. That there should be an orderly and proper regulation of this relationship is thus the intent and which is reflected in omission of the words reproduced above. That omission must be held to be purposeful. Some significance is attached to the omission of these words or else the legislative intent stands fully frustrated and defeated. No construction or interpretation which frustrates and defeats the legislative object and purpose can be placed particularly on the provisions of an unifying and consolidating statute.
73 We are not in agreement with Mr.Madon that all the claims and disputes of the nature referred to in Section 7(15) of the MRC Act must be resolved by the courts of special jurisdiction referred to in Section 33 of the MRC Act, 1999. It is his submission that the legislature equally intended that there should be one Fora or one court so as not to create further complications and on account of two courts exercising parallel jurisdiction. Mr.Madon's argument presupposes that the dispute in the present case and arising out of the plaint allegations is a claim or question arising out of the MRC Act. That submission has no legal basis and is clearly untenable. Having noted that the words under the old Act and of wide amplitude having been omitted in Section 33 of the new Act, it is not possible to agree with Mr.Madon. Further, it is not possible to agree with him that the questions that are posed or the claims that have to be ::: Downloaded on - 22/06/2014 23:29:30 ::: *61* app.312.12.scd&gsk.os.db decided in the present case must be decided by the court of exclusive or special jurisdiction or else there will be a parallel adjudication.
74 In that regard Section 7(15) of the MRC Act needs to be referred and in somewhat details. That provision has been reproduced hereinabove. Pertinently it is the definition of the term "tenant". In the first part, namely, in clause (a) recognition is given to such person who is a tenant by virtue of or under the provisions of any of the Repealed Acts. Thus, a tenant means any person by whom or on whose account rent is payable of any premises and includes such person by virtue of or under the provisions of any of the Repealed Acts. Thus, any person by whom rent is payable or on whose account rent is payable for the premises means a tenant. It includes any person in such capacity and recognized by the Repealed Act or any of its provisions.
75 Clause (b) refers to a person who is deemed to be a tenant under Section 25 of the MRC Act and therefore, he becomes a tenant for the purpose of the MRC Act. Now, Section 25 of the MRC Act refers to certain sub-tenants and whose induction is lawful. Their sub-tenancy ought to be subsisting on the date of commencement of the MRC Act. Equally, where sub-tenancy is permitted by contract between the landlord and tenant, then such sub-tenant shall subject to the provisions of this Act be deemed to become a tenant of the landlord on the same terms and conditions as he would have held as a tenant if tenancy is continued. This means a person who is inducted by the landlord as a tenant can with the consent of the landlord induct a third party. That third party, sub-tenant, steps into the shoes of a tenant and on identical terms. That person is deemed to be a tenant and he, therefore, is a tenant and as defined in Section 7(15). Equally, any person to whom interest in the premises has ::: Downloaded on - 22/06/2014 23:29:30 ::: *62* app.312.12.scd&gsk.os.db been assigned and transferred as permitted under Section 26 is a tenant. Each of the clauses, namely, clauses (b) and (c) recognize the principle of general law. A general or ordinary law of contract permitting creation of further interest by a tenant that the Rent Control Legislation recognizes occupation, possession and status of the party inducted by the lessee/tenant and proceeds to regulate and control that relationship as well. The Legislature intends to control and regulate the contractual relationship. For that purpose and to protect the interest of such persons so also for the larger welfare of both, that the Rent Control Legislation includes within its fold a sub-tenant who has been inducted in possession by a tenant under a contract, and which is consented to by the landlord. That is a lawful sub-tenancy because it is permitted by a contract between the landlord and tenant.
76 It is, therefore, fallacious to contend that the general law of contract or ordinary law creating relationship of landlord and tenant finds no place or cannot be referred to while interpreting the provisions of the MRC Act. If an interpretation, which recognizes the relationship of landlord and tenant, but intends to control it has to be placed on the provisions of the MRC Act, then, there is a pointer or indication in the definition of the term "tenant" appearing in Section 7(15). Sub-clause (d) of Section 7(15), therefore, cannot be seen in isolation and construed de-
hors the general law of contract or the ordinary law enabling transfer of property. If tenancy means creation of interest in the premises and is akin to lease, then, a person recognized and accepted as a tenant dying, the MRC Act does not envisage or contemplate a vacuum. Equally, the law does not allow everybody and anybody to step in. The law does not permit chaos or utter confusion. The law postulates that after the tenant dies and whether his death occurring after or before commencement of the MRC ::: Downloaded on - 22/06/2014 23:29:30 ::: *63* app.312.12.scd&gsk.os.db Act, then, any member of his family who, if premises are let for residence, is residing or if premises are let for education, business or storage, is using the premises for such purposes with the tenant at the time of his death, becomes a tenant. If there is no such member of tenant's family and in the case of residential premises, with which we are concerned, residing with the tenant at the time of his death, then, any heir of the deceased tenant as may be decided in the absence of agreement by the Court, steps in the shoes of the deceased tenant.
77 In the present case, burden was on the Appellants to prove that this Court has no jurisdiction to entertain and try the subject suit. They did not lead any oral and documentary evidence. They decided to rest their case on the averments and allegations in the plaint. We have reproduced the relevant averments in the plaint. The Respondent/ Plaintiff has alleged from paragraph 3 onwards as to how his late father became tenant in respect of the suit flat. In paragraph 4 of the plaint, the Respondent/Plaintiff fairly states that he was employed with Asian Development Bank and as a part of employment, had various postings outside India. Later on he joined services of International Monetary Fund in January, 1992 and continued to be posted outside India. He has then set out the facts pertaining to his marriage. He has alleged that the Appellants are residing at the address mentioned in the cause title of the plaint. They do not reside in the suit flat. The Respondent then sets out the fact pertaining to his second marriage. In paragraph 8 of the plaint, he sets out that after death of his father, the tenancy of the suit flat was transferred to his late mother. However, rent receipts continued to be issued in the name of deceased father. The Respondent alleges that he was paying rent to the landlord in respect of the suit flat after his father's demise and is continuing to pay the same till date.
::: Downloaded on - 22/06/2014 23:29:30 ::: *64* app.312.12.scd&gsk.os.db
78 In paragraph 9 of the plaint it is alleged that mother left a
Will in respect of which the Probate was obtained by the Respondent/ Plaintiff on 22.06.2005. It is alleged that at the time of death of mother only the Respondent and his wife were staying with her in the suit flat. The Appellant No.1 was not residing at the suit flat. She resided at her matrimonial home at Bandra. After the death of Respondent's mother, according to the Respondent, he succeeds to the tenancy. He claims to be in juridical and settled possession of the suit flat since 2001 and regularly paying rent to the landlord. The version in paragraph 9 of the plaint, therefore, is that since the Respondent was staying with his deceased father and mother in the suit flat at the time of the death of father and thereafter, mother, the Respondent becomes a tenant of the suit flat in accordance with law. However, in paragraph 10 he states that after the mother's death the Respondent solely has right, title and interest in and is in possession of the suit flat. He has been using and residing in the same with his wife Ms.Fiona and daughter Ms.Marisha. The Appellant No.1 visited the suit flat, but never lived therein since her marriage and from 1970. It is thereafter, the offer was made to the Appellant No.1 to pay certain amount if the Respondent/ Plaintiff surrendered the tenancy of the suit flat.
79 This is the case which has been considered by the learned Single Judge to be one not based on the residence of a member of the family with the original tenant at the time of his death. The learned Single Judge has considered this case as one projected by a person claiming to be the heir of the deceased tenant and asserting succession to the tenancy rights to the exclusion of other heir. Meaning thereby this is an inter-se dispute between two persons who are the heirs of the deceased tenant and ::: Downloaded on - 22/06/2014 23:29:30 ::: *65* app.312.12.scd&gsk.os.db not agreeing between themselves as to who amongst them or one of them would succeed to the tenancy rights. Therefore, we do not find much substance in the contentions of Mr.Devitre that this is a case based on settled physical possession and disturbance or obstruction thereto by the Appellants. The learned Single Judge has, in the impugned order, referred to the plaint allegations and held in paragraph 10 that both parties are claiming rights over the tenanted flat being heirs of the deceased tenant. The learned Single Judge then observed that this is an inter-se dispute between legal heirs of the deceased tenant. To our mind, therefore, the plaint averments point towards a dispute of the nature referred above.
This is not a case where any person is claiming tenancy rights in the subject flat on the footing that he is a member of the family residing with the original tenant at the time of his death. This is a case which falls in the later part of clause (d), namely, a heir of the deceased tenant claiming to be a tenant of the flat to the exclusion of others. Since there is no agreement nor could the heirs decide amongst themselves as to who should succeed to the tenancy rights that we need not advert to and consider the submissions of Mr.Madon about the nature of agreement contemplated by clause (d) of sub-section 15 of Section 7 of the MRC Act.
We need not consider his argument that the agreement referred to therein must be between the heirs and the landlord. Since there is no agreement between two heirs in this case all that we have to consider is, whether, their inter-se dispute and which is foundation of the suit before this court, can be adjudicated upon by the Court of Small Causes at Mumbai or it is the ordinary civil court, meaning thereby this Court on its original side which can entertain, try and adjudicate on the same.
80 In this regard, Mr.Madon's other contention is that in the absence of any agreement and if there is a dispute as to which of the heir ::: Downloaded on - 22/06/2014 23:29:30 ::: *66* app.312.12.scd&gsk.os.db succeeds to the tenancy rights, then, it has to be decided by the Court. Mr.Madon's contention is that the term "court" means, in this case, the Court of Small Causes and not this Court.
81 We have already held that for the courts in Section 33 of the MRC Act to exercise jurisdiction, a suit or proceeding must be between a landlord and a tenant and relating to recovery of rent or possession of any premises. It could be an application made under the MRC Act based on such relationship. Mr.Madon would submit that this case would fall within clause (c) of sub-section (1) of Section 33 of the MRC Act. In elaborating this contention, he submits that whenever a dispute of the present nature is raised, presence of the landlord is a necessary. Meaning thereby, to a suit or proceeding of the present nature the landlord is a necessary party.
82 We are of the view that this aspect of the matter, namely, whether the landlord is necessary party or not, does not touch, in this case, jurisdiction of this Court. Even if the Court has jurisdiction to entertain and try the suit in the absence of necessary party, the consequences in law will follow. We are not deciding the issue as to whether the landlord is necessary party to the present suit or not. Suffice it to hold that our focus is on the core issue, namely, whether this Court has jurisdiction to entertain and try the suit itself.
83 We are of the view that this is not a case or proceeding between a landlord and tenant relating to recovery of rent or possession of any premises. We have been shown several decisions of this Court under the old Act as to what could be said to be a suit relating to recovery of rent or possession and difference between the words "relating to recovery of rent or possession" and "relating to possession". We are of the opinion ::: Downloaded on - 22/06/2014 23:29:30 ::: *67* app.312.12.scd&gsk.os.db that the instant suit being not between a landlord and tenant, the ambit and scope of these words or their meaning need not be considered in this case at all. That aspect would arise provided a suit or proceeding is between the landlord and tenant. This is a case where two heirs of the deceased tenant are laying a claim to the tenancy rights. One of them has approached this Court and claimed that he is entitled to damages as also permanent injunction restraining the other from entering or remaining on the suit flat or any part thereof. Thus, this is not a case based on the residence in the suit flat with the deceased tenant at the time of his/ her death. For the heir to succeed to the tenancy, the first requirement is that there should not be any member of the family who is residing with the tenant at the time of his death. The second requirement is that a person now laying a claim should be any heir of the deceased tenant. The matter reaches the Court because there is no agreement, as in this case, between more than one heir of the tenant, as to who should succeed the tenancy rights. Therefore, the requirement of residence has no application in such claim.
84 In the case of Budhmal Khushalchand and another v/s Bansilal Gulabchand Agarwal and others reported in 1983(1) Bom.C.R. 11, a learned Single Judge of this Court (Hon'ble Mr. Justice S.C. Pratap, as His Lordship then was, held that inheritance of contractual tenancy did not depend upon, whether, the heir actually did or did not reside with the deceased/ original tenant in the suit premises. There was no provision in the old Rent Act contrary to such inheritance. The Rent Act provides additional protection to those residing as members of the tenant's family at the time of his death. In these circumstances and when there is no requirement of the heir residing with the deceased/original tenant in the tenanted flat at the time of his death, then, we will have to consider as to ::: Downloaded on - 22/06/2014 23:29:30 ::: *68* app.312.12.scd&gsk.os.db whether, the dispute between the Respondent and the Appellant No.1, both being heirs of the deceased/ original tenant, can be adjudicated by an ordinary civil court.
85 In that regard we must not forget as held above that the jurisdiction of a civil court cannot be ousted by mere assertion in defence.
The jurisdiction of the court in the present case must be determined and decided on the allegations in the plaint. It is the allegation in the plaint which must project the relationship and which is envisaged by Section 33(1)(c) of the MRC Act. It is only then the court of special jurisdiction and to the exclusion of an ordinary civil court will be in a position to entertain and try the disputes of the present nature or the suit involving the disputes of the present nature.
86 The principle based on which the jurisdiction of an ordinary civil court is decided and in such cases, has been settled long time back. In the case of Magiti Sasamal v/s Pandab Bissoi and others reported in AIR 1962 SC 547, the Honourable Supreme Court held as under:-
"8. It is true that having regard to the beneficent object which the Legislature had in view in passing the Act its material provisions should be liberally construed. The Legislature intends that the disputes contemplated by the said material provisions should be tried not by ordinary civil courts but by tribunals special designated by it, and so in dealing with the scope and effect of the jurisdiction of such tribunals the relevant words used in the section should receive not a narrow but a liberal construction.
9. While bearing this principle in mind we must have regard to another important principle of construction, and that is that if a statute purports to exclude the ordinary jurisdiction of civil courts it must do so either ::: Downloaded on - 22/06/2014 23:29:30 ::: *69* app.312.12.scd&gsk.os.db by express terms or by the use of such terms as would necessarily lead to the inference of such exclusion. As the Privy Council had observed in Secretary of State v. Mask and Co., 67 Ind App 222 at p.236: (AIR 1940 PC 105 at p.110), "it is settled law that the exclusion of the jurisdiction of the civil courts is not to be readily inferred, but that such exclusion must either be explicitly expressed or clearly implied".
There can be no doubt that ordinarily a dispute in regard to the relationship between the parties such as that between a landlord and a tenant would be a dispute of a civil nature and would fall within the competence of the civil court. If the respondents contend that the jurisdiction of the civil court to deal with such a civil dispute has been taken away by section we must enquire whether section expressly takes away the said jurisdiction or whether the material words used in the section lead to such an inference or the scheme of the Act inescapably establishes such an inference. The relevance and materiality of both these principles are not in dispute."
87 This decision has been followed by the Honourable Supreme Court in a later decision reported in AIR 1963 SC 361 (Shri Raja Durga Singh of Solon v/s Tholu and others). The Honourable Supreme Court also referred to somewhat similar controversy and in paragraphs 4, 5, 6 and 7 held as under:-
"4. It is contended before us by Mr. Achhru Ram for the appellant that for a suit to be barred under S. 77(3) of the Act from the cognizance of a civil court two conditions have to be satisfied. The first is that the suit should relate to one of the matters described in sub-s. 3 and the second is that the existence of the relationship of landlord and tenant should be admitted by the parties. If these two conditions are not satisfied then, according to him, the suit is not barred from the cognizance of a civil court. In support of his contention he has relied upon the ::: Downloaded on - 22/06/2014 23:29:30 ::: *70* app.312.12.scd&gsk.os.db decision in Sham Singh v. Amarjit Singh, ILR 12 Lah. 111 : (AIR 1931 Lah. 362); Baru v. Niader, ILR 1943- 24 Lah.191 : (AIR 1942 Lah 217); Daya Ram v. Jagir Singh, AIR 1956 Him Pra 61. He has also relied upon certain observations of this Court in Magiti Sasamal; v.
Pundab Bissoi, AIR 1962 SC 547. Section 77(3) and the first proviso thereto run as follows:
"The following suits shall be instituted in, and heard and determined by Revenue Courts, and no other Court shall take cognizance of any dispute or matter with respect to which any such suit might be instituted :- Provided that -
(1) Where in a suit cognizable and instituted in a Civil Court it becomes necessary to decide any matter which can under this sub-section be heard and determined only by a Revenue Court shall endorse upon the plaint the nature of the matter for decision and the particulars required by Order VII, rule 10, Code of Civil procedure and return the plaint for presentation to the Collector."
5. We are not concerned with the second proviso. Below the second proviso the kind of suits which are triable by the revenue courts are set out in three groups. It is contended on behalf of the respondents that the suit in question would fall under entry (e) in the second group. That entry reads thus :
"suits by a landlord to eject a tenant."
They also contend that their suit before the revenue court was one under entry (d) which reads thus :
"Suits by a tenant to establish a Claim to a right of occupancy, or by landlord to prove that a tenant has not such a right."
It would however, appear that not only items (d) and (e) but every other item in the three groups relates to a dispute between tenants on the one hand and the landlord on the other. There is no entry or item relating to a suit by or against a person claiming to be a tenant and whose status as a tenant is not admitted by the landlord. It should, therefore, be reasonable to infer that the legislature barred only those suits from the cognizance of a civil court where there was no dispute ::: Downloaded on - 22/06/2014 23:29:30 ::: *71* app.312.12.scd&gsk.os.db between the parties that a person cultivating land or who was in possession of land was a tenant. This is precisely what has been held in the two decisions of the Lahore High Court relied upon by Mr. Achhru Rana. In the first of these two cases Tek Chand J., observed :
"It is obvious that the bar under clause (d) is applicable to those cases only in which the relationship of landlord and tenant is admitted and the object of the suit is to determine the nature of the tenancy i.e. whether the status the tenant falls under sections 5, 6, 7 or 8 of the Act."
In that case the suit was instituted by someone claiming to succeed to the tenancy of certain land on the death of the occupancy tenant. The learned Judge observed :
"In a suit like the one before us the point for decision is not the nature of the tenancy, but whether the defendant is related to the deceased tenant and if so whether their common ancestor had occupied the land.
If these facts are established, the claimant ipso facto succeeds to the occupancy tenancy, But if they are found against him, he is not a tenant at all."
6. As these facts were not established, the High Court held that the landlord was entitled to sue the defendant who had entered on the land asserting a claim to be a collateral of the deceased tenant but who failed to substantiate his claim. This view was affirmed by a Full Bench consisting of five Judges in the other Lahore case.
In AIR 1956 Him. Pra. 61, the same Judicial Commissioner who decided the appeal before us has expressed the view that where in a suit for ejectment the existence of the relationship of landlord and tenant is not admitted by the parties, the Civil Court had jurisdiction to try the suit and that such a suit did not fall under Sec.77(3) of the Act. In AIR 1962 SC 547, this Court was considering the provisions of Section 7(1) of the Orissa Tenants Protection Act, 1948 (3 of 1948). The provisions of that section run thus :
"Any dispute between the tenant and the landlord as regards, (a) tenant's possession of the land on the 1 st ::: Downloaded on - 22/06/2014 23:29:30 ::: *72* app.312.12.scd&gsk.os.db day of September, 1947 and his right to the benefits under this Act, or (b) misuse of the land by the tenant, or © failure of the tenant to cultivate the land properly or (d) failure of the tenant to deliver to the landlord the rent accrued due within two months from the date on which it becomes payable, or (e) the quantity of the produce payable to the landlord as rent, shall be decided by the Collector on the application of either of the parties."
7. It was contended in that case on behalf of the respondents who claimed to be tenants that the suit for permanent injunction instituted by the appellant-landlord was barred by the provisions of Section 7(1). Dealing with this contention this Court observed as follows:
"In other words, Section 7(1) postulates the relationship of tenants and landlord between the parties and proceeds to provide for the exclusive jurisdiction of the Collector to try the five categories of disputes that may arise between the landlord and the tenant. The disputes which are the subject matter of Section 7(1) must be in regard to the five categories. That is the plain and obvious construction of the words 'any dispute as regards'. On this construction it would be unreasonable to hold that a dispute about the status of the tenant also falls within the purview of the said section. The scheme of Section 7(1) is unambiguous and clear. It refers to the tenant and landlord as such and it contemplates disputes of the specified character arising between them. Therefore, in our opinion, even on a liberal construction of Section 7(1) it would be difficult to uphold the argument that a dispute as regards the existence of the relationship of land and tenant falls to be determined by the Collector under Section 7(1)."
The observations of this Court would clearly apply to the present case also inasmuch as the relationship of landlord and tenant as between the parties to the suit is not admitted by the appellant.
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88 In a later decision reported in AIR 1966 SC 1718 (Abdul
Waheed Khan v/s Bhawani and others), the Honourable Supreme Court reiterated the principle that under Section 9 of the Code of Civil Procedure, 1908 a civil court can entertain a suit of civil nature except a suit of which the cognizance is either expressly or impliedly barred. It is settled principle that it is for the party who seeks to oust the jurisdiction of a civil court to establish his contention. It is also equally settled that the Statute ousting the jurisdiction of a civil court must be strictly construed. Thus, in the case of agricultural tenancy, but construing somewhat similar provisions the Honourable Supreme Court held that when the relationship of landlord and tenant is admitted, then alone the jurisdiction of an ordinary civil court could be said to be ousted. The question of title is, thus, foreign to the adjudication contemplated by the provisions like Section 33.
89 This view has been reiterated in the case of Richpal Singh and others v/s Dalip reported in AIR 1987 SC 2205. In paragraph 6 of the decision, the Honourable Supreme Court held thus:-
"6. The overall scheme of the Act is to provide speedy remedies with regard to disputes between the landlords and tenants and also under what circumstances that relationship comes to an end. It is appropriate to bear in mind the whole basic question involved in this appeal is whether the courts created by this Act have limited power and jurisdiction or plenary powers and jurisdiction. In this appeal we are concerned with the amplitude of the jurisdiction of the courts under Section 77 of the Act which deals with Courts and suits cognizable by them. Relevant portion of Section 77 of the Act provides as follows:
"77. Revenue Courts and suits cognizable by them.- (1) When a Revenue-Officer is exercising jurisdiction with respect to any such suit as is described ::: Downloaded on - 22/06/2014 23:29:30 ::: *74* app.312.12.scd&gsk.os.db in Sub-section (3), or with respect to an appeal or other proceeding arising out of any such suit, he shall be called a Revenue Court.
(2) ......................
(3) The following suits shall be instituted in, and heard and determined by, Revenue Courts, and no other Court shall take cognizance of any dispute or matter with respect to which any such suit might be instituted :
-
Provided that -
(1) .......................
(2) ......................
First Group ....................
igSecond Group .....................
(e) suit by a landlord to eject a tenant;"
Thereafter, in paragraph 9 the Honourable Supreme Court held thus:-
"9. Our attention was drawn by Sree Harbans Lal, learned Counsel appearing for the appellants to Section 98 of the Act, as to the power of the Revenue Court to refer to the Civil Court a decision by the Revenue Court if it thought proper and also to Section 99, where there is power to refer to High Court question as to jurisdiction. These provisions, in our opinion, do not in any way affect the question whether the decision of the Revenue Court under the Revenue Act can operate as res judicata in certain cases like the present. The limits of the jurisdiction would be apparent by the fact that in all suits by a landlord to eject a tenant, do not encompass suits to decide whether a person is a tenant or not or whether the plaintiff is a landlord or not. The question was answered by this Court in Om Prakash Gupta v. Rattan Singh (1964)1 SCR 259 where Sinha, C.J. dealing with the Delhi Rent Control Act observed at pages 264 and 265 as follows:
"The most important question that arises for determination in this case is whether or not the Rent Control authorities had jurisdiction in the matter in ::: Downloaded on - 22/06/2014 23:29:30 ::: *75* app.312.12.scd&gsk.os.db controversy in this case. Ordinarily it is for the Civil Courts to determine whether and, if so, what jural relationship exists between the litigating parties. But the Act has been enacted to provide for the control of rents and evictions of tenants, avowedly for their benefit and protection.. The Act postulates the relationship of landlord and tenant which must be a preexisting relationship. The Act is directed to control some of the terms and incidents of that relationship. Hence, there is no express provision in the Act empowering the Controller, or the Tribunal, to determine whether or not there is a relationship of landlord and tenant. In most cases such a question would not arise for determination by the authorities under the Act. A landlord must be very ill-advised to start proceedings under the Act, if there is no such relationship of landlord and tenant. If a person in possession of the premises is not a tenant, the owner of the premises would be entitled to institute a suit for ejectment in the Civil Courts, untrammelled by the provisions of the Act. It is only when he happens to be the tenant of premises in an urban area that the . provisions of the Act are attracted."
In paragraph 10, the Honourable Supreme Court referred to the judgment in Shri Raja Durga Singh of Solan v/s Tholu (supra) and reiterated the principle that if the dispute was as to the nature of the relationship of landlord and tenant between the parties, the Revenue Court under the Punjab Tenancy Act had no jurisdiction. When that was the admitted position, the relationship of landlord and tenant was accepted, the remedies and rights of the parties should be worked out under the scheme of the Tenancy Act. Therefore, the Honourable Supreme Court held that ouster of jurisdiction of a civil court should not be inferred easily and it must be clearly provided for and established.
90 Having outlined the object and purpose of the Rent Control
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Legislation and holding that it is only when there is preexisting relationship of a landlord and tenant that the Courts of exclusive or special jurisdiction would be in a position to entertain and try the suits or disputes that we are of the opinion that all the more in the present case the dispute between two heirs as to who should succeed to the tenancy rights in respect of the suit flat is out of the purview of the Courts specified in Section 33 of the MRC Act. To clothe these courts with jurisdiction to entertain and try the suits where the dispute raised is of the present nature or a claim or question to be tried is not involving any preexisting relationship, would be enlarging and expanding the jurisdiction as also ambit and scope of the provision or section conferring it. That would be contrary to the settled canon of interpretation. A reading of the MRC Act as a whole leaves us in no manner of doubt that the disputes of the present nature do not fall within the province of the courts specified in Section 33 of the MRC Act. We are, therefore, not inclined to accept the argument of Mr.Madon that the term "court" appearing in Section 7(15)(d) of the MRC Act means a court specified in Section 33 and and not an ordinary civil court. For the reasons that we have indicated herein above the provisions of Section 33 do not admit of such construction. Further, the argument of Mr.Madon that there would be parallel adjudication does not impress us. In the facts and circumstances of this case we do not find that there is any parallel adjudication. It may be that the Appellants have approached the Court of Small Causes. However, their suit is for declaration that they are tenants in respect of the suit flat. That is the declaration claimed against the landlord. Therefore, the Respondent/ Plaintiff being a party thereto does not mean that it is the Court of Small Causes alone which can decide the claim or question raised in the instant suit. With the aid of the plaint in the Suit filed in the Court of Small Causes by the Appellants and their assertions in the affidavit in ::: Downloaded on - 22/06/2014 23:29:30 ::: *77* app.312.12.scd&gsk.os.db reply filed in the Notice of Motion in the instant Suit, the Appellants will not succeed in proving that this Court lacks jurisdiction to entertain and try the present Suit. That is the stand of the Appellants and based on their version. That is at best their defence to the present Suit. However, their version cannot be taken into consideration to determine this Court's competence to try the Respondent's Suit. Thus, both suits cannot be as identical or common at this stage and the issue of this Court's jurisdiction is required to be answered independently and with reference to the averments in the plaint in the Suit laid in this Court. When a larger picture as pointed out above is borne in mind and taken into consideration, then, the argument of Mr.Madon must fail.
91 Mr.Madon tried to take assistance from some decided cases. Mr.Madon submits that even the disputes between two heirs and with regard to succession to tenancy rights falls within Section 33 of the MRC Act as was held in the case of Section 28 of the old Act.
92 In support of the above argument Mr.Madon relies upon a judgment of the learned Single Judge of this Court in the case of C.J.Ghadiali and others v/s Z.B.Wadiwalla reported in 1981 Mh.L.J. 876 :
1981 Bom.C.R. 956. A careful perusal of the same would reveal that the original Defendants to the suit filed in the Trial Court, namely, ordinary civil court appealed to this Court against a decree passed. One Soonabai was a tenant of two flats being block Nos.C and D in a building at Mumbai. She had daughter, Dhanabai. Dhanabai had three daughters. One of the daughters was married to the Defendant No.1 in the Suit. She died after the suit was decided. Her two daughters and the husband of one of daughters of Dhanabai were involved in the litigation. The learned Single Judge noted the admitted factual position in paragraph 2, namely, at the ::: Downloaded on - 22/06/2014 23:29:30 ::: *78* app.312.12.scd&gsk.os.db time of death of Soonabai the Defendant No.1 along with Defendant Nos.2 and 3 and her husband were residing in Block-D and the Plaintiff and one Khorshed were residing in Block-C with Soonabai. The dispute between parties is referred to in paragraphs 3 and 4 of the judgment. Thereafter, the arguments have been noted in paragraph 5 onwards. The learned Single Judge considered one of the arguments and with regard to interpretation of Section 5(11)(c) of the old Act and in paragraphs 12 to 14, made the observations relied upon by Mr.Madon. Apart from the observations referring to the legal position as emerging from the old Act and till the amendment thereto by the Act XXII of 1978 we are of the opinion that firstly, these observations must be seen in the context of the pleadings in the suit before the learned Single Judge. Secondly, no assistance can be derived from this judgment because of the difference in wording of two sections. Section 28 of the old Act was worded some what differently. As held by us above the courts specified in Section 28 of the old Act had jurisdiction to entertain and try any suit or proceeding between a landlord and a tenant relating to the recovery of rent or possession of the premises to which any of the provisions of Part-II of the old Act apply or between a licensor and a licensee relating to the recovery of the licence fee or charge. That Court had jurisdiction to decide an application made under the old Act. It had jurisdiction to deal with any claim or question arising out of the old Act or any of its provisions. The omission of these words is crucial and deliberate. The Legislature having consciously omitted these words from Section 33 of the new Act we do not think that this decision would assist Mr.Madon.
93 However, Mr.Madon submits that even under the new Act same view has been taken and in that regard, he relies upon a judgment of the learned Single Judge of this Court in the case of Sanyam Realtors ::: Downloaded on - 22/06/2014 23:29:30 ::: *79* app.312.12.scd&gsk.os.db Private Limited, Mumbai v/s Shyamji Bhagirathi Yadav and another reported in 2014(1) Mh.L.J. 244. In this decision, the learned Single Judge took the view that a dispute resulting from lack of agreement between the heirs about succession to tenancy rights, would fall under Section 33 of the MRC Act and therefore, an ordinary civil court is barred from entertaining and trying it.
94 A careful perusal of this decision shows that the Appellant before the learned Single Judge was the original Defendant No.1. He challenged validity and legality of the judgment and order dated 28.08.2012 of the learned Judge, City Civil Court, Greater Mumbai whereby the learned City Civil Judge framed the issue about proof of tenancy in respect of the suit premises, as also as to who inherited the tenancy rights amongst the heirs of the original tenant. The Court held that the instrument, namely, agreement dated 26.10.2005 executed between the Defendant Nos.1 and 2 is not binding upon the Plaintiff.
95 The argument before the learned Single Judge was that the real cause of action before the Court raised a question relating to tenancy of the suit premises, as also, status of legal heir as tenant under the MRC Act. The Trial Court has framed the issue regarding jurisdiction of the City Civil Court, but it was answered in the affirmative and the learned City Civil Judge proceeded to deal with the merits of the averments in the plaint.
96 The averments in the plaint have been noted in paragraph 4. What has been averred is that one Shyamji Bhagirathi Yadav claimed to be grandson of Mathuraprasad Yadav (original tenant of the suit premises). Mathuraprasad was tenant in respect of the suit premises and the landlord ::: Downloaded on - 22/06/2014 23:29:31 ::: *80* app.312.12.scd&gsk.os.db was Ramnath Tiwari. Mathuraprasad died in the year 1976 at village Ahopur in Uttar Pradesh leaving behind legal heirs as mentioned in paragraph 4. The dispute raised in the plaint is about relinquishment of tenancy rights in respect of the suit premises with consequent mandatory injunction to restrain the Defendants from dispossessing the Plaintiff or his family members. The learned Judge noted further argument of the Appellant before him, namely, that the question was raised relating to tenancy in respect of the suit premises and because of non availability of other heirs of the original tenant at Mumbai they were not added by the Plaintiff either as co-plaintiff or defendant. In substance, therefore, the Plaintiff averred that he is one of the co-tenant in respect of the suit premises and sought reliefs based upon a right arising out of the tenancy in respect of the suit premises. He was seeking declaration that the agreement for relinquishment of tenancy rights is illegal, null and void and also sought cancellation thereof. The agreement dated 26.10.2005 was purportedly executed between the Defendants in the suit. The argument, therefore, was that the City Civil Judge could not have decided any such question relating to tenancy of the suit premises which is governed under the MRC Act. The question in substance to be decided was as to who is tenant after death of the original tenant Mathuraprasad.
97 In paragraph 5, the learned Single Judge referred to the judgment of the Honourable Supreme Court in the case of Vasant Pratap Pandit v/s Anant Trimbak Sabnis reported in 1994 (3) SCC 481 : 1994 Mh.L.J. 1450. We will advert to this decision little later.
98 Then, the learned Single Judge in paragraph 6 reproduced the definition of the term "tenant" appearing in Section 7(15) of the MRC Act. In paragraphs 7 to 13, the learned Single Judge held as under:-
::: Downloaded on - 22/06/2014 23:29:31 :::*81* app.312.12.scd&gsk.os.db "7. Thus when tenant left behind number of legal heirs, any member of the tenant's family residing with him at the time of his death, or in case of disagreement, as may be decided by the court, can be tenant in respect of the premises governed under the Act. The application in this regard is required to be decided by the Special court. In Greater Mumbai, it is the court of Small Causes, Mumbai, which has to decide any application made under the Maharashtra Rent Control Act, 1999. Section 33 prohibits any other court to exercise jurisdiction in order to entertain any such suit, proceeding or application or to deal with any such hearing or question. That being so, city civil court cannot entertain suit or application in relation to claim as to tenancy in respect of premises governed under the Act.
8. My attention is also invited on behalf of learned counsel for respondent no. 1 to the ruling in Ratanlal Shah vs. Chanbasappa Chincholi and others reported in AIR 1978 Bombay 216, wherein, this court held that where the relationship of landlord and tenant between the plaintiff and defendant was not in existence at the time of or even prior to the suit for eviction as a result of disclaimer of title, the bar of jurisdiction of civil court does not apply. It was held that the relationship of landlord and tenant is a sine qua non to attract the provisions of Section 28. The ruling is distinguishable as in that case, there was no averment regarding relationship of landlord and tenant between the plaintiff and defendant. In paragraph 32 of the ruling, this court explained the legal position indicating that there must be a contractual tenancy in existence before any statutory tenancy can be posited in favour of a tenant. The tenant whose contractual tenancy is determined, is a tenant within the inclusive definition of the word tenant in Section of the Bombay Rent Act, and when a landlord determines a contractual tenancy and claims eviction of a tenant, his claim is triable exclusively by the court contemplated under Section 28 of the Act. Statutory tenancy is protected by the Bombay Rent Act. This court also explained exception in cases where there is surrender of tenancy by the tenant or there is disclaimer, the situation is qualitatively different and is governed by ::: Downloaded on - 22/06/2014 23:29:31 ::: *82* app.312.12.scd&gsk.os.db different legal principles. Although the observation is strongly relied upon on behalf of respondent no. 1, considering the averments made in the plaint in the present case, there was no case of any disclaimer, nor surrender of tenancy by the tenant since question of tenancy is not yet decided by the Special court under the Bombay Rent Act, after the death of original tenant.
9. Reliance is also placed upon ruling in H.C. Pandey vs. G.C. Paul reported in 1989 Mh.L.J. (S.C.) 461 = AIR 1989 SC 1470. Under the Transfer of Property Act, the principle is that upon the death of the original tenant, subject to any provision to the contrary, either negativing or limiting the succession, the tenancy rights devolve on the heirs of the deceased tenant. In other words, the heirs succeed to the tenancy as joint tenants.
In the present case, however, question is about tenancy governed under the Special Act and not under General law of Transfer of Property Act. Hence, ruling is not attracted.
10. Reliance is also made to Navyug Co-op. Housing Society Ltd. & Another vs. Vile Parle Kelavani Mandal & Another reported in 2005(3) Bom.C.R. 579, wherein, the issue was regarding decree for specific performance of the obligations imposed on defendant no. 1 as lessee in lease dead. In the facts and circumstances of the case, this court after making reference to Section 33 of Maharashtra Rent Control Act, 1999, and after making reference to averments made in the plaint, in which directions were sought for proper administration of the Trust, held that neither the provisions of Section 33 of Maharashtra Rent Control Act, nor the provisions of Section 50 of Bombay Public Trusts Act barred jurisdiction of the High Court on original side to entertain the suit.
11. The principle is well settled that when question of jurisdiction of the court is raised to entertain and try the suit, one has to apply mind to the averments made in the plaint, so as to find out the claim of the plaintiff in substance, as also, nature of the right pleaded along with cause of action and the reliefs sought. There is no need to make reference to written statement or defence by the defendants, when on the basis of averments in the ::: Downloaded on - 22/06/2014 23:29:31 ::: *83* app.312.12.scd&gsk.os.db plaint itself, it appears that the civil court has no jurisdiction to entertain and try the questions arising from the plaint. The court may, upon meaningful reading of the plaint, finding that court has no jurisdiction to entertain the suit, but special court has jurisdiction in this case under the Maharashtra Rent Control Act, 1999, the court ought to have returned the plaint for presentation to the proper court, so as to decide the questions arising from averments made in the plaint. The provisions relating to jurisdiction of the Special court under the Maharashtra Rent Control Act, 1999, in Section 33 read with Section 7(15) operate, notwithstanding anything contained in any law for the time being in force, and also prohibit any other court from exercising jurisdiction, entertain suit, proceeding or application, to decide any claim or question relating to any application, required to be made under the Maharashtra Rent Control Act.
12. Thus, after demise of original tenant, first question from the averments in the plaint arises as to who is tenant under the Maharashtra Rent Control Act after death of Mathuraprasad Yadav (original tenant) when according to plaint itself, Mathuraprasad Yadav left legal heirs as mentioned in gynecology in paragraph 4 of the plaint, the question arose as to who derived tenancy as under
the Maharashtra Rent Control Act 1999, legal heirs must agree as to who shall inherit tenancy from the original tenant as "tenant" within the meaning of the Act would be liable to tender rent to the landlord. In default of agreement between the legal heirs, the question can be decided by the Special court under the Maharashtra Rent Control Act, 1999.
13. The averments in the present case also indicate that the plaintiff was claiming as one of the co-tenants. In other words, the question as to who is tenant, is not yet determined by the Special court under the Maharashtra Rent Control Act, 1999. Thus, the question raised regarding relinquishment of tenancy rights was incidental and consequential relief which is close from the main relief as to who is tenant under the Maharashtra Rent Control Act, 1999. For all these reasons, it must be concluded, that the impugned ::: Downloaded on - 22/06/2014 23:29:31 ::: *84* app.312.12.scd&gsk.os.db judgment and order is not sustainable as the City Civil court had no jurisdiction to decide the question of tenancy which is required to be exclusively dealt with and decided under the Maharashtra Rent Control Act, 1999. In respect of the suit premises governed by the said Act, there was a clear bar of Section 33 read with Section 7(15) Clause (d) of Maharashtra Rent Control Act for City Civil court to entertain the suit."
99 A closer look and scrutiny of these paragraphs would reveal that firstly, the learned Single Judge did not correctly interpret the definition of the term "tenant". We have not only referred to the definition in detail, but we have also analyzed it. That definition firstly refers to death of tenant which may have occurred before or after commencement of the MRC Act. However, when the tenant dies, any member of the tenant's family who is, in the case of residential premises, residing and in the case of commercial or premises referred to in clause (ii), using the premises for that purpose with the tenant at the time of his death, steps into his shoes and is recognized as tenant. It is in the absence of such member that any heir of the deceased tenant can step in. He steps in because of the agreement between the heirs to succeed or step in and if there is no agreement or rather disagreement or dispute, then, as settled and adjudicated by the Court. Meaning thereby, when there is no agreement between the heirs as to who should succeed to the tenancy rights, then, such disagreement or dispute must be decided by the Court and in accordance, so also, in consonance with the decision of the Court the succession is settled. Therefore, the observations in paragraph 7 of the judgment of the learned Single Judge do not take note of the plain language of the Statute and rather the definition of the term "tenant". Once the basic premise on which the learned Single Judge proceeds is ::: Downloaded on - 22/06/2014 23:29:31 ::: *85* app.312.12.scd&gsk.os.db erroneous in law, then, with greatest respect, we do not think that we can uphold the conclusions reached by the learned Single Judge.
100 Further, we find that the learned Single Judge erroneously and without adverting to the material changes, applies the old Rent Act and Section 28 thereof. We do not see how any assistance could have been derived and in the teeth of clear departure in the new Act from the language of Section 28 of the old Act. We do not find any reference made to Section 33 of the new Act i.e. MRC Act, 1999 leave alone in details.
Apart therefrom, we do not find how the learned Single Judge could have distinguished the judgment in the case of Ratanlal Shah v/s Chanbasappa Chincholi and others reported in AIR 1978 Bombay 216. The learned Single Judge without analyzing Section 33 of the MRC Act reached an erroneous conclusion in paragraph 12. For the reasons that we have indicated hereinabove and finding that the learned Single Judge was in patent error, with respect, in not properly and correctly construing and interpreting the definition of the term "tenant" and not analyzing Section 33 in the light of the settled legal principles, that we do not approve of his above conclusions.
101 The learned Judge failed to note that even when Section 28 of the old Act was widely worded, when it was considered and interpreted, there was divergence of legal opinion. The judgments of the Honourable Supreme Court, some of which have been referred by us above, took the view that not all matters and questions can be adjudicated upon by the Court of exclusive or special jurisdiction. An ordinary civil court is, thus, not completely out of picture. The issue of succession to the property being in the nature of civil right a civil court continues to have jurisdiction. It cannot be that the matters of testamentary and intestate ::: Downloaded on - 22/06/2014 23:29:31 ::: *86* app.312.12.scd&gsk.os.db succession have been taken out of the purview of jurisdiction of an ordinary civil court. It is in that regard and while we are considering the correctness of the views of two learned Single Judges that we repeatedly inquired from Mr.Madon as to what matters could be dealt with in the event the instant suit filed in the Court by the Respondent/ Plaintiff would have to be laid or filed in the Court of Small Causes. Mr.Madon submits that the words "landlord" and "tenant" appearing in Section 33 and a suit or proceeding between them do not necessarily mean that there should be a proved, established or a preexisting relationship. The definition of the terms "landlord" and "tenant" have been referred by Mr.Madon to mean that a person claiming to be a tenant and in this case trying to step into shoes of the original tenant qua the landlord would bring the dispute within Section 33 and therefore, the jurisdiction of this Court is impliedly ousted.
102 We are unable to agree with Mr.Madon inasmuch as the plaint allegations would show that what the Respondent/ Plaintiff has been alleging is that the property in this case is tenancy right. He succeeds to the tenancy right because firstly he was residing with the original tenant at the time of his/ her death and dealing with the landlord on their behalf, as also, after their demise. Secondly, he relies upon the wishes of parent in conferring upon the Respondent/ Plaintiff the exclusive right to succeed to the tenancy rights in respect of the suit flat. Thirdly, he is referring to the fact of the Appellants having not been always residing in the suit flat and rather alleging that after the Appellant No.1's marriage she never resided in the suit flat. She has always been residing at her matrimonial home. Thus, she has nothing to do with the tenancy. Such aspect and essentially of succession to the property of the deceased tenant cannot be agitated in the Court of Small Causes. That would mean that the said Court is ::: Downloaded on - 22/06/2014 23:29:31 ::: *87* app.312.12.scd&gsk.os.db burdened with suits or proceedings between the landlord and tenant not only relating to recovery of rent or possession of the premises and to decide any application made under the MRC Act and further to deal with any claim or question therein, but additionally matters unconnected therewith. One can understand that if they were ancillary and incidental to the proceedings contemplated by sub-section (1) of Section 33 and particularly clause (c). However, independent thereof and merely because one of the properties of the deceased happen to be tenancy rights, the claim or question pertaining to testamentary or intestate succession cannot be brought in and by indirect or oblique method. In fact it is not necessary to multiply this judgment with decided cases by this Court or by the Honourable Gujarat High Court. In the event there is no member of the family residing with the tenant at the time of his death in the case of residential premises nor is there any heir as agreed upon or otherwise and who can step into the shoes of the original tenant, then the landlord is not helpless. He can recover possession of the premises and by proceeding in accordance with law. He can also by way of an appropriate application get the matter decided by the court under Section 33 of the MRC Act. All such suits or proceedings and initiated by the landlord clearly fall within the purview of Section 33 of the MRC Act. However, a dispute as to who is a heir of the original/ deceased tenant, if there are more than one heir and there is no agreement between them as to who should succeed to the tenancy rights, is a claim or question relatable to succession and therefore, within the competence of an ordinary civil court. It is in these circumstances that we have held that it is not possible to enlarge the ambit and scope of Section 33 of the MRC Act, 1999.
103 There is one more reason as to why it is not possible to agree with Mr.Madon because the language of the Statute in this case is plain ::: Downloaded on - 22/06/2014 23:29:31 ::: *88* app.312.12.scd&gsk.os.db and clear. It is only the courts specified in Section 33 of the MRC Act which have special jurisdiction. The suits or proceedings must be between a landlord and a tenant. They should relate to recovery of rent or possession of any premises. The specified courts also have jurisdiction to decide any application under the MRC Act other than the applications which are to be decided by the State Government or an officer authorized by it or competent authority. The Act envisages applications for fixation of standard rent and permitted increase and provided in Chapter-II. There are also suits and proceedings and applications which are referred to in Chapters-III and IV. There are also certain applications or proceedings which could be with regard to cutting of or withholding essential supply or services. There could be also applications and in which compensation is sought by alleging that they are not bonafide or false or frivolous or vexatious. However, what is material and relevant to note is that, in suits and proceedings the parties have to be landlord and tenant and the suits/proceedings must relate to recovery of rent or possession of any premises. The later part of Clause (c) and beginning with the words "and to decide any application under this Act" cannot be construed so broadly and as suggested by Mr.Madon. The arguments of Mr.Madon overlook the applications contemplated by the MRC Act. Apart from the fact that these applications are specifically referred to in the chapters noted by us above, additionally, these are also between a landlord and tenant. Whenever and wherever the legislature intended to define these words to include any other person in the definition, it has taken care to incorporate a specific provision. For illustration, in Chapter VIII, the legislature incorporates Section 41. It reads as under :
"Section 41. Definition of landlord for the purpose of Chapter VIII.- For the purposes of this Chapter, landlord means a landlord who is,-::: Downloaded on - 22/06/2014 23:29:31 :::
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(a) a person who has created a service tenancy in respect of his premises or a part thereof in favour of his employee under Section 22;
(b) a member of the armed forces of the Union or a scientist or a Government servant or a successor-in- interest, referred to in Section 23; or
(c) a person who has given premises on licence for residence or a successor-in-interest referred to in Section 24."
In Section 24, an explanation is added and that provision together with the explanation reads as under :-
"Section 24. Landlord entitled to recover possession of premises given on licence on expiry. -
(1) Notwithstanding anything contained in this Act, a licensee in possession or occupation of premises given to him on licence for residence shall deliver possession of such premises to the landlord on expiry of the period of licence; and on the failure of the licensee to so deliver the possession of the licensed premises, a landlord shall be entitled to recover possession of such premises from a licensee, on the expiry of the period of licence, by making an application to the Competent Authority, and the Competent Authority, on being satisfied that the period of licence has expired, shall pass an order for eviction of a licensee.
(2) Any licensee who does not deliver possession of the premises to the landlord on expiry of the period of licence and continues to be in possession of the licensed premises till he is dispossessed by the Competent Authority shall be liable to pay damages at double the rate of the licence fee or charge of the premises fixed under the agreement of licence.
(3) The Competent Authority shall not entertain any claim of whatever nature from any other person who is not a licensee ::: Downloaded on - 22/06/2014 23:29:31 ::: *90* app.312.12.scd&gsk.os.db according to the agreement of licence.
Explanation.- For the purposes of this section, -
(a) the expression "landlord" includes a successor-in-interest who becomes the landlord of the premises as a result of such landlord;
but does not include a tenant or a sub-tenant who has given premises on licence;
(b) an agreement of licence in writing shall be conclusive evidence of the fact stated therein.
Thus, any application made under the MRC Act ought to be between a landlord and tenant and under the Act. The Legislature was keen to confer jurisdiction on the courts specified in Section 33 to adjudicate and decide the suit, proceeding relating to recovery of rent or possession and application under the MRC Act but even these ought to be under the chapters referred above. These chapters also indicate the relationship or status of the parties. The words emphasized by Shri Madon have to be construed accordingly. The words "Application made under this Act"
therefore will not take within their import the instant suit. If that is to be included as suggested by Shri Madon, we would be adding to the provision something not covered by it. Therefore, it is not as if any claim or question can be dealt with by the courts referred to in Section 33 of the MRC Act. These specified or preexisting courts are referred to in a Statute, which does not create the relationship of landlord and tenant. It seeks to regulate and control it. One, therefore, cannot loose sight of the object and purpose in enacting the Rent Control Legislation and lay down any abstract principle or rule as suggested by Mr.Madon.
104 Further, a deliberate departure by the competent legislature in the language of Section 33 of the MRC Act from that of Section 28 of ::: Downloaded on - 22/06/2014 23:29:31 ::: *91* app.312.12.scd&gsk.os.db the old Act cannot be lost sight of. In the case of State of Uttar Pradesh v/s Malik Zarid Khalid reported in AIR 1988 SC 132, the Honourable Supreme Court held as under:-
"10. We are unable to accept the appellant's contention. The interpretation placed by the Full Bench of the High Court on Section 3(o) equates the position under the statute after the amendment of 1976 to the position both as it stood prior to the 1976 amendment and also as it stood after the 1983 Ordinance. Such an approach fails to give any effect at all to the change in language deliberately introduced by the 1976 amendment. No doubt, prior to the amendment, only buildings of which the Government was owner or landlord were excluded from the Act. But the Legislature clearly intended a departure from the earlier position. If the intention was merely to extend the benefit to premises owned or let out by public corporations, it could have been achieved by simply adding a reference to such corporations in Section 2(1)(a) and(b) as they stood earlier. Reading Section 2(1)(a) & (b) as they stood before amendment and the definition in Section 3(o) side by side, the departure in language is so wide and clear that it is impossible to ignore the same and hold that the new definition was just a re-enactment of the old exemption. The exclusion was earlier restricted to buildings owned by the Government and buildings taken on lease or requisitioned by Government and granted by it by creating a tenancy in favour of some one. The amendment significantly omitted the crucial words present in the earlier legislation which had the effect of restricting the exclusion to tenancies created by the Government, either as owner or as landlord. Full effect must be given to the new definition in Section 3(o) and to the conscious departure in language in reframing the exclusion.
11. The subsequent legislation also reinforces the same conclusion. The 1976 amendment had come up for judicial interpretation and certain decisions referred to in the Full Bench decision as well as the judgment presently under appeal had given the above literal interpretation to Section 3(o). If they had run counter ::: Downloaded on - 22/06/2014 23:29:31 ::: *92* app.312.12.scd&gsk.os.db to the true legislative intent, one would have expected the repeated Ordinances since 1983 and the ultimate Amendment Act of 1985 to have placed the position beyond doubt by a retrospective amendment. Though the Ordinance of 1977 made its amendment retrospective from 5-7-76, these later amendments are all specifically given effect to from 18-5-1983. The effect of the decisions rendered remained untouched till then. The fact that the 1976 amendment marked a departure from the more restricted exclusion available earlier and the fact that the said restriction exclusion was again restored with effect only from 18-5-1983 militate against the correctness of adhering to this narrow interpretation even during the interregnum from 5-5- 1976 to 18-5-1983."
105 Having regard to these principles and the departure made by the Legislature in Section 33 of the MRC Act, 1999, that we are of the opinion that there is no substance in Mr.Madon's arguments.
106 Mr.Madon not only derives support from the judgment of the learned Single Judge which we have referred and not approved of, but he submits that the learned Single Judge has relied on the judgments of the Honourable Supreme Court and they are binding on us. In that regard he refers to the judgment of the Honourable Supreme Court in the case of Vasant Pratap Pandit v/s Dr.Anant Trimbak Sabnis reported in 1994(3) SCC 481. Mr.Madon's reliance on this judgment is somewhat misplaced. In that the Honourable Supreme Court was concerned with the correctness of the judgment rendered by this Court. The question was, whether, the tenancy rights under the Bombay Rent Act can be demised by a Will. The facts have been referred to in paragraphs 2 and 3. One Tara Bai was a tenant of the suit premises. She died issueless. She left behind a Will ::: Downloaded on - 22/06/2014 23:29:31 ::: *93* app.312.12.scd&gsk.os.db bequeathing her properties including tenancy right in the said premises to her sister's son Gopal and appointing the Plaintiff-appellant, her brother's son, as executor thereof. The Respondent/ Defendant who happened to be grandson of a sister of the legatee and his wife were staying with Tara Bai in the disputed premises. After death of Tara Bai, the Appellant- Vasant called upon the Respondent to vacate the premises and on his refusal, he instituted the suit for eviction in the City Civil Court at Mumbai. The Respondent resisted the suit principally on the ground that the bequest of tenancy rights amounted to "transfer" and it was impermissible under Section 15. Therefore, the Appellant could not claim his eviction.
Negativing the contention of the Respondent the Trial Court decreed the suit and aggrieved thereby the Respondent preferred an Appeal in the High Court. While allowing the Appeal and dismissing the Suit, the High Court held that the word "heir" appearing in Section 5(11)(c) of the Act did not include "legatee" and the words "assign" and "transfer" appearing in Section 15 were used in a generic sense to include bequest. Therefore, this Court concluded that the Appellant -Vasant had no right to file the suit.
In the second matter before the Honourable Supreme Court, the Appellant/ Plaintiff filed the suit for eviction of her brother and his wife claiming herself to be sole legatee of her father under the probated Will dated 06.10.1961 which referred to the tenancy rights in the disputed premises. Similar denial was raised by the Respondents in the companion Appeal before the Supreme Court and they urged that as members of the family of the deceased residing with him at the time of his death they were entitled to remain in possession. Here also relying upon the judgment in the earlier matter, the Trial Court dismissed the suit and the High Court affirmed that dismissal.
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107 That is how the matter was carried to the Honourable
Supreme Court. Pertinently, the disputes noted by the Honourable Supreme Court in both Appeals were raised in the suits and filed in the City Civil Court, namely, ordinary civil court. It is in that context that the Honourable Supreme Court made the observations in paragraph 14 on which strong reliance is placed by Mr.Madon. We do not find that these observations are in any way assisting Mr.Madon in his submission on the jurisdiction of this Court. Rather they would support our conclusion that when there are more than one heirs, the landlord may or may not agree to one or other of them being recognized as a tenant. In the case of such disagreement the Court has to decide who is to be treated as a tenant. In this decision the Honourable Supreme Court does not hold that the term "court" is the court referred to in Section 33 of the MRC Act and Section 28 of the old Act. All that this judgment holds is what is to happen in the event there is no member of the family residing with the original tenant at the time of his death. In the absence of such member the heirs will be entitled to be treated as tenants as decided, in default of agreement, by the Court. These heirs can be excluded if any other member of the family was staying with the tenant at the time of his death. In these circumstances we do not feel that this judgment can render any assistance to Mr.Madon.
108 Then, Mr.Madon relied upon the judgment of the Honourable Supreme Court in the case of Ashok Chintaman Juker and others v/s Kishore Pandurang Mantri and another reported in 2001(5) SCC 1. In that case as well all that the Honourable Supreme Court holds is that in case of joint tenancy a notice on one of the tenant is valid and the suit for eviction impleading one of them as Defendant is maintainable. A decree passed in such suit is binding on all tenants. To our mind, the definition of the term ::: Downloaded on - 22/06/2014 23:29:31 ::: *95* app.312.12.scd&gsk.os.db "tenant" referred therein is prior to the amendment made to the old Act in the year 1978. Further, there is nothing in the observations in paragraph 10 which would lend support to the submissions of Mr.Madon.
109 Mr.Madon also relied upon the judgment of the Honourable Supreme Court in the case of Anathula Sudhakar v/s P.Buchi Reddy (dead) by LRS and others reported in 2008(4) SCC 594. To our mind, this decision cannot assist Mr.Madon because this is a decision on maintainability of the suit. The issue of maintainability of the suit cannot be confused with jurisdiction of the Court to entertain and try the suit in this case. That is an issue of competence of the Court to deal with the subject matter of the suit. We are not in any way concerned with, in this case, the scope of suit for prohibitory injunction relating to immovable property and when and in what circumstances the suit for permanent injunction will lie without a declaration of title.
110 Mr.Madon then cited some additional judgments and in that regard his principal reliance was on the judgment rendered by the Division Bench of this Court in Sadbuddhi Brahmesh Wagh & others v/s Sheela Mahabaleshwar Wagh and others reported in 2003(6) Bom.C.R.
787. Mr.Madon submits that this decision fully supports him. We are unable to agree. There, the argument was, as to whether, the Arbitrator could have dealt with the issue raised, namely, the dispute with regard to the tenancy rights. The dispute has been referred to in paragraphs 10 and
11. In paragraphs 12 and 13 the judgments which have been cited by Mr.Madon have been referred to. In paragraph 14 the argument that the general law of succession is superseded by the Bombay Rent Act in respect of the tenancies covered thereunder has been referred to and in dealing with that the observations relied upon in paragraphs 28 to 30 have been ::: Downloaded on - 22/06/2014 23:29:31 ::: *96* app.312.12.scd&gsk.os.db made. Mr.Madon's reliance on these observations cannot be said to be entirely well placed. Firstly, all these observations must be seen in the context of a finding of the Division Bench that the Arbitrator appointed under the Arbitration Act, 1940 was incompetent to decide the claim or question that arose out of the old Rent Act. The jurisdiction in that regard exclusively vests and is conferred in the courts specified in Section 28 of the old Act. The Arbitrator could not have usurped that jurisdiction. The other observations, therefore, cannot be read out of context and de-hors this essential finding. The controversy was in the light of jurisdiction of the Arbitrator. That apart change in the phraseology and wording of Section 33 of the MRC Act cannot be lost sight of as held by us above. Apart therefrom we do not find anything in the language of Section 7(15) which would enable us to hold that it is only Small Causes Court which has exclusive jurisdiction to decide as to which of the heir would step into the shoes of the original/ deceased tenant. All observations relied upon by Mr.Madon, save and except presence of the landlord, can be said to be, therefore, made in the context of language of Section 28 of the old Act. Under the old Act there was scope for the argument that a claim or question arising out of the Bombay Rent Act may not involve and may not be between the landlord and tenant. The language of Section 28 was held to be wide enough to cover all questions arising out of that Act even though the parties may not be in the legal relationship. Even that view was highly debatable as we have found from the history of legislations, precedents and conflicting views. It is to get over the same and leave no room for any controversy in future that a clear departure was made by the Legislature and by omitting the words of wide amplitude. We need not repeat our conclusions all over again. Suffice it to state that even this decision does not assist Mr.Madon.
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111 Similar is the position with regard to the judgment of the
Honourable Supreme Court in the case of H.C.Pandey v/s G.C.Paul reported in (1989) 3 SCC 77. There is absolutely no quarrel with the proposition which Mr.Madon culls out from paragraph 4 of this judgment.
112 The judgment in Sadbuddhi Brahmesh Wagh v/s Sheela Mahabaleshwar Wagh (supra) was rendered by the Division Bench comprising of Honourable Mr. Justice H.L.Gokhale (as His Lordship then was) and Honourable Mrs. Justice N.N.Mhatre on 05.10.2002/28.03.2003. His Lordship Honourable Mr. Justice H.L.Gokhale in a later decision reported in 2007 (3) Mh.L.J. 302 (Bibi Begum Mard Shafiq Ahmed Khatimiti v/s Mohmed Khalid Gulam Dastgir Jalal) (WP/4415/2003 decided on 08.01.2007), in paragraph 17 held as under:-
"17. We are concerned with a Suit where four grounds of eviction have been set up by the plaintiffs. The plaintiffs are claiming that the defendants are trespassers of the property. The defendants have squarely raised amongst others a dispute that the plaintiffs are not the landlords.
It is for them to agitate it. For the other persons who claim to be the landlords of the property, their forum is to go to the Civil Court and establish their title. That is not an issue which is incidental to the determination and necessary in the Suit which is being tried under Section 28 of the Bombay Rent Act. The jurisdiction of the Rent Court under Section 28 is a limited jurisdiction circumscribed by the provisions of the Act. It cannot be expanded beyond that. A determination of the title to the property at the instance of a person who claims to be an owner of the property is outside the jurisdiction of the Rent Act."
Thus, the point of jurisdiction was not free from doubt and that is all that we have emphasized.
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113 The judgment of the learned Single Judge of this Court in the
case of Miss Gool Rustomji Lala v/s Jal Rustomji Lala reported in AIR 1972 Bombay 113 has not been fully approved by the Division Bench of this Court. (see judgment of the Division Bench in the case of Rajaram Brindavan Upadhyaya v/s Ramraj Raghunath Upadhyaya reported in 1977 Mh.L.J. 792). This is a judgment after which some amendments have been made to the Bombay Rent Act, 1947 and on the basis of which other judgments relied upon by Mr.Madon have been rendered. It appears that the attention of the learned Single Judge deciding the issue in 2004 (1) Mh.L.J. 540 (Vimalabai Keshav Gokhale v/s Avinash Krishnaji Biniwale and others) was not invited to the Supreme Court and Division Bench judgments in the field.
114 We are of the opinion that other principle, namely, that clever drafting of the plaint will not confer jurisdiction in the Court if it does not possess it in law, can never be disputed. We have applied that very principle and looked at the substance of the suit and not the skill of draftsman.
115 In the light of the view that we have taken strictly it is not necessary to refer to the judgments relied upon by Mr.Devitre. Suffice it to hold that even when the language of Section 28 of the old Act was as wide as emphasized by Mr.Madon, still there was divergence of opinion. The controversy as to in what circumstances the matter will go to the Court of special jurisdiction as referred in Section 28 was frequently considered. In that regard, reliance placed by Mr.Devitre on the judgments of the learned Single Judge reported in AIR 1967 (Bombay) 434 (Vishnu Dutt Vashisth v/s Maharashtra Watch and Gramophone Company and Firm at Bombay ::: Downloaded on - 22/06/2014 23:29:31 ::: *99* app.312.12.scd&gsk.os.db and others) and 2005 (3) Bombay Cases Reporter 579 (Navyug Cooperative Housing Society Ltd. v/s Vile Parle Kelavani Mandal), is apposite. His further reliance on a judgment of the Honourable Supreme Court in the case of Mansukhlal Dhanraj Jain v/s Eknath Vithal Ogale reported in 1995 (2) SCC 665 is well placed. Pertinently, while dealing with the issue of jurisdiction of the courts under Section 41(1) of the Presidency Small Cause Courts Act, 1882 and Section 28 of the old Rent Act, namely, Bombay Rent Act, the Honourable Supreme Court in paragraphs 18, 19 and 20 made very pertinent observations. The Honourable Supreme Court re-emphasized and reiterated the principle that even while claiming injunction the Plaintiff will have to show that he has a right to claim it. The Honourable Supreme Court then has referred to several decisions including a Full Bench judgment of this Court in the case of Dattatraya Krishna Jangam v/s Jairam Ganesh Gore reported in AIR 1965 Bombay 177. The Honourable Supreme Court held that before getting injunction, whether temporary or permanent, the Plaintiff has to establish a legal right for the said relief. While emphasizing that not everything is covered by Sections 28 and 41, the Honourable Supreme Court referred to the injunction suits and based on previous peaceful possession and subsequent threatened dispossession. They may stand on a different footing and would not be covered by Section 41(1) of the Presidency Small Cause Courts Act, 1882 or for that matter Section 28 of the Bombay Rent Act, 1947. We need not go into this aspect in further details after having noted and considered Section 33 of the new Act.
116 The submissions of Mr.Devitre, therefore, need not detain us.
117 However, Mr.Devitre invited our attention to a judgment of the Honourable Supreme Court in the case of Laxmidas Moraraji v/s ::: Downloaded on - 22/06/2014 23:29:31 ::: *100* app.312.12.scd&gsk.os.db Behrose Darab Madan reported in 2009(10) SCC 425. In paragraphs 18 to 23, the Honourable Supreme Court held as under:-
"18. Section 28 of the Act begins with a non-obstante clause.
By Section 28 of the Act, the legislature has designated certain courts to entertain and try any suit or proceeding between a landlord and a tenant relating to recovery of rent or possession of any premises to which any of the provisions of this part apply and to decide any application made under Bombay Rent Act and to deal with any claim or question arising out of Bombay Rent Act or any of its provisions. The designated courts are, the Court of Small Causes in Greater Bombay, a Court of Small Causes established under the Provincial Small Causes Courts Act, 1887, in any area where such court is established and in other areas, the court of Civil Judge (Junior Division) having jurisdiction in the area in which the premises are situated or if there is no such Civil Judge, the court of Civil Judge (Senior Division) having ordinary jurisdiction.
19. This Court in the case of Khem Chand Dayal Ji and Co.
v. Mohammed Bhai Chand Bhai, while discussing the provision prescribing the jurisdiction to the Small Causes Court, has noticed, that: (SCC p.885, para5) "5. .......by Section 28 of the Act certain courts were designated as courts of exclusive jurisdiction to entertain and try suits and proceedings between a landlord and tenant relating to recovery of rent or possession to which the provisions of the Act applied and also decide claims or questions arising under the Act."
20. The Rent Control Act is a special enactment conferring certain special rights and imposing certain special obligations upon landlords and tenants. The Rent Control Act imposes restrictions on the right of landlord to evict his tenants on the grounds other than what is specified in the Statute. This Court in the case of Om Prakash Gupta v. Rattan Singh has observed that (SCR pp.264-65) "Ordinarily, it is for the civil courts to determine whether and if so, what jural relationship exists between the litigating parties". The Tribunals ::: Downloaded on - 22/06/2014 23:29:31 ::: *101* app.312.12.scd&gsk.os.db under the Act being creatures of the Statute have limited jurisdiction and have to function within the limits of the Statute creating them. But within the provisions of the Act, they are Tribunals of exclusive jurisdiction and their orders are final and not liable to be questioned in collateral proceedings, like a separate application in execution proceedings.
21. The Court in Om Prakash Gupta Case has further observed, that, therefore, there is no substance in the contention that as soon as the appellant denies the relationship of landlord and tenant, the jurisdiction of the authorities under the Act is completely ousted. A landlord must be very ill-advised to start proceedings under the Act, if there is no relationship of landlord and tenant. If a person in possession of the premises is not a tenant, the owner of the premises would be entitled to institute a suit for ejectment in the civil courts, untrammeled by the provisions of the Act. It is only when he happens to be the tenant of the premises in an urban area, the provisions of the Act are attracted. Mere denial of relationship of landlord and tenant cannot oust the jurisdiction unless it is specifically provided in the Statute. If the Rent Controller finds that the opposite party is not a tenant of the landlord, he must dismiss the landlord's application for eviction, but if he finds that such a plea by the opposite party is not true and that the opposite party is a tenant of the landlord, then, if the ground of eviction is proved, he must order eviction of the tenant.
22. Section 28 of the Bombay Rent Act deals with the jurisdiction of the Courts, to decide on issues arising out of the Act. In a suit relating to possession of the premises where the relationship of landlord and tenant admittedly subsists between the parties, jurisdiction to entertain and try such a suit is in the courts specified in Section 28. All applications made under the Act are also to be entertained and disposed of by the courts specified in Section 28 and no other. In all such suits or proceedings the courts specified in Section 28 also have the jurisdiction to decide all claims or questions arising ::: Downloaded on - 22/06/2014 23:29:31 ::: *102* app.312.12.scd&gsk.os.db out of the Act or any of its provisions.
23. In the instant case, the suit premises is situate within the jurisdiction of Greater Bombay. In view of Section 28 of the Act, the Court of Small Causes, Bombay, will have jurisdiction. The appellants have filed a suit for eviction. The suit is maintainable provided that a landlord-tenant relationship is established. However, it is clear from the pleadings of the appellants that they do not consider respondent No. 5 as a tenant. In furtherance of this stand, the appellants have gone on to adduce evidence to prove that respondent does not qualify the conditions to be deemed as tenant under the Bombay Rent Act. In the light of the principles stated by this Court in Om Prakash Gupta's case , the inevitable conclusion is that Small Causes Court at Bombay had no jurisdiction to entertain the suit filed by the owners of the suit premises."
118 These observations and findings reinforce our conclusion that to clear all doubts and controversies, the Legislature stepped in by making a comprehensive enactment consolidating all Rent Control Legislations in the State and unifying them into a single Act. We say nothing more.
119 In the light of the above conclusions and finding that the learned Single Judge was in no error in holding that the present Suit does not raise any claim or question within the meaning of Section 33(1)(c) of the Maharashtra Rent Control Act, 1999 that we are of the view that there is no merit in this Appeal. The Appeal fails. It is dismissed, but without any order as to costs.
th
Dated 16 June, 2014
120 At this stage, it is requested that in the companion Appeal,
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namely, Appeal (Lodging) No.68/2014 and which is pending there is an order passed by the Division Bench on 24.04.2012. By this order it has been directed that in the event the learned Single Judge decides the Notice of Motion No.1548/2011 in Suit No.1173/2011 in favour of the Respondent/ Plaintiff and issues any interim order in the Suit against the present Appellants, then, that may not be given effect for a period of four weeks.
121 Mr.Saraf prays that since the Appellants are desirous of challenging the order passed in the present Appeal in a higher court this order of 24.04.2012 be continued for a period of three weeks.
122 The request is opposed by the learned counsel appearing for the Respondent stating that the Respondent is a senior citizen and eagerly waiting for outcome of the proceedings.
123 Since the other Appeal is still pending and we have pronounced the order in the Appeal on the issue of jurisdiction of the Trial Court, interest of justice would be served if the order dated 24.04.2012 is continued for a period of three weeks, but without prejudice to the rights and contentions of the parties. It will be open for the parties to seek appropriate directions from the Honourable the Chief Justice with regard to disposal of other Appeal as well, during this period.
(GIRISH S. KULKARNI, J.) (S.C. DHARMADHIKARI, J.) ::: Downloaded on - 22/06/2014 23:29:31 :::