2002 Supreme(MP) 670

2003 (1) JLJ 85
(SUPREME COURT)
R.C. Lahoti and B.N. Agrawal, JJ.
Dhannalal v. Kalawati Bai and others
Civil Appeals No. 3652-53 of 2002; against orders of the M.P. High
Court passed in Civil Revn. No. 316 of 1997; Decided on 8.7.2002.

Headnote:(1) Accommodation Control Act, 1961 (M.P.) -- Ss. 12(1) and 23-A -- suit/application for eviction -- can be filed by one landlord/owner when there are several -- tenant cannot challenge the action on this ground.

       The property was owned by late Krishnadas. He inducted the two appellants in the two shops as tenants for nond`residential purpose. Krishnadas died on 8.7.1995. His ownership and right of reversion as landlord have devolved on his widow Smt. Kalawatibai and two sons-Govinda and Hemant. These three are the respondents in these appeals. They initiated the proceedings for eviction of the two appellants in December 1995. The case of the respondents is that the shop in the occupation of appellant Dhannalal is required bona fide for starting the business of Govinda, respondent No.2, while the shop in the occupation of the other appellant, M/s. Tulsidas Sureshchandra is required by the respondent Hemant for shifting and continuing his readymade garments business which he is presently running in a rented accommodation. ... The RCA found the claims for eviction proved and directed the two appellants to be evicted. Both the appellants preferred revision petitions under section 23-E of the Act before the High Court. The High Court, having dealt with each of the contentions raised on behalf of the revision petitioners, has dismissed the revision petitions upholding the orders of the RCA. Feeling aggrieved thereby, these appeals have been filed. [Para 2

       Held: One of co-owners can alone and in his own right file a suit for ejectment of the tenant and it is ns defence open to the tenant to question the maintainability of the suit on the ground that the other co-owners were not joined as pm1ies to the suit. When the property forming the subject-matter of eviction proceedings is owned by several owners, every co-owner owns every part and every bit of the joint property along with others and it cannot be said that he is only a part owner or a fractional owner of the property so long as the property has not been partitioned. He can alone maintain a suit for eviction of the tenant without joining the other co-owners if such other co-owners do not object. (1976) 4 SCC 184. (1977) 2 SCC 814 and (1989) 1 SCC 444 relied on. [Para 16

       (2) Accommodation Control Act, 1961 (M.P.) -- Ss. 11-A, 12(1), 23-A, 23-J and 45 -- landlord falling in special category under S. 23-J -- cannot have recourse of eviction under S. 12(1) -- he will have to seek remedy for eviction under S. 23-A only.

       Such a landlord seeking eviction of his or her tenant on the ground of bona fide requirement of residential or nond`residential accommodation, the ground as defined in section 23-A of the Act, must have recourse of Chapter III-A only. Section 11-A of the Act provides that the provisions of Chapter III, so far as they relate to matter specially provided in Chapter III-A, shall not apply to the landlord defined in section 23-J. Section 45 of the Act also provides that as to the matters which the Rent Controlling Authority is empowered by or under the Act to decide, are not entertain-able by the civil Court. The effect of these provisions is that a landlord as defined in section 23-J of the Act cannot have recourse to the forum of the civil Court. [Para 8

       (3) Accommodation Control Act, 1961 (M.P.) -- Ch. III-A, Ss. 23-A, 23-C and 23-D -- Civil P.C., 1908 -- O. 37 -- Summary procedure for eviction provided in Ch. III-A of the Act -- is similar to one provided for summary suit in O. 37 of the Code -- tenant cannot contest the eviction if not granted leave to contest as provided in S. 23-C. [Para 9

       (4) Accommodation Control Act, 1961 (M.P.) -- Ch. III-A -- Constitution of India -- Art. 14 -- provisions under Ch. III-A of the Act -- are valid and not violative of Art. 14 of the Constitution. 1985 JLJ 793 and 2000(2) JLJ 105 approved. (1980) 1 SCC 290 and (1984) 2 SCC 75 relied on. [Para 11

       (5) Accommodation Control Act, 1961 (M.P.) -- Ss. 23-A and 23-J -- one out of several landlords falling in special category of S. 23-J -- application for eviction is maintainable before RCA.

       Out of several landlords of an accommodation including a widow, an application for eviction of the tenant by the widow alone, on the ground of her own bona fide need or joint need of herself and that of her married sons and their children who are members of his family would be competent before the Rent Controlling Authority under section 23-A(a) read with section 23-J of the Act. [Para 14

       An analysis of section 23-A(b) of the Act shows that an application seeking eviction of the tenant there under is maintainable if : (i) the accommodation is let for nond`residential purpose; (ii) it is required bona fide by the landlord for the purpose of continuing or starting (a) his business, or (b) business of any of his major ions or unmarried daughters; (iii) the landlord is the owner of such accommodation or is holding accommodation for benefit of any person who requires the accommodation; and (iv) the landlord or such person has no other reasonably suitable nond`residential accommodation of his own in his occupation in the city or town concerned. 1989 JLJ 336 and 1990 JLJ 97 (FB) approved. [Para 15

       (6) Accommodation Control Act. 1961 (M.P.) -- Ss. 12(1) and 2(1) (b) -- eviction suit against tenant -- sub-tenant may be joined as proper party. AIR 1953 SC 73 relied on. [Para. 18

       (7) Legal Maxims -- ubi jus ibi remedium -- there is no wrong without a remedy. [Para 21

       (8) Civil P.C. 1908 -- S. 9 -- every person has inherent right to institute civil suit not barred by any statute.

       There is an inherent right in every person to bring a suit of a civil nature and unless the suit is barred by statute, one may, at one‘s peril, bring a suit of one‘s choice. It is no answer to a suit, howsoever frivolous the claim, that the law confers no such right to sue. A suit for its maintainability requires no authority of law and it is enough that no statute bars the suit. (1974) 2 SCC 393 relied on. [Para 22

       (9) Civil P.C., 1908 -- Ss. 17 and 20 -- disrupted property situating at different places -- defendants residing in different places -- suit can be filed in the Court under whose jurisdiction any part of the property is situated or any of the defendants is residing. AIR 1936 PC 189 relied on. [Para 24

       (10) Accommodation Control Act, 1961 (M.P.) -- Ss. 12(1) and 23-A -- suit or application for eviction -- who can and how can be filed -- principles laid down.

       (i) Where a claim for eviction is filed by a landlord, or a co-landlord, belonging to anyone of the five categories defined in section 23-J of the Act, as the sole applicant without objection by other co-landlords who have not joined as co-applicants and the nature of claim for eviction is covered by section 23-A(b) of the Act, the proceedings would lie only before the Rent Controlling Authority.

       (ii) Where a claim for eviction is filed by a landlord or by such a co-landlord who does not belong to any of the categories defined by section 23-J and the other co-landlord/landlady falling in one of the categories defined in section 23-J is not joined as a co-plaintiff, the claim shall have to be filed only by way of a suit instituted in a civil Court.

       (iii) If the proceedings are initiated by such co-owner landlords, one or more of whom belong to section 23-J category while some others are those not falling within the definition of landlord under section 23-J and the requirement pleaded provides a cause of action collectively to all the landlords arrayed as plaintiffs or applicants, the choice of forum lies with the landlords, They may file an application before RCA under Chapter III-A or may file a civil suit in a civil Court under section 12 of the Act; in either case, the proceedings would be competent and maintainable. [Para 25

       (11) Accommodation Control Act, 1961 (M.P.) -- Ss. 12(i) (f) and 23-A (b) -- alternative accommodation -- must be owned by landlord and should be as suitable as the disputed premises is -- landlord cannot be compelled to continue in rented accommodation. (1999) 6 SCC 222 relied on. [Para 27

       ¼1½ LFkku fu;a=.k vf/kfu;e] 1961 ¼e-iz-½ && /kkjk 12¼1½ rFkk 23&d && csn[kyh ds fy, okn@vkosnu && vusd Hkw&Lokeh gksa rc muesa ls ,d }kjk Qkby fd;k tk ldrk gS && vfHk/kkjh bl vk/kkj ij dkjZokbZ ij vk{ksi ugha dj ldrkA

       laifÙk fnoaxr d`".knkl dh FkhA mlus nksuksa vihykfFkZ;ksa dks nks nqdkuksa esa fuoklsrj iz;kstukFkZ vfHk/kkfj;ksa ds :i esa izfo"V fd;kA 8-7-1995 dks d`".knkl dh e`R;q gks xbZA mldk LokfeRo rFkk Hkw&Lokeh ds :i esa mÙkjHkksx dk vf/kdkj mldh fo/kok Jherh dykorh rFkk nks iq= xksfoank vkSj gsear dks U;kxr gks x;kA ;gh rhuksa bu vihyksa esa izR;FkhZ gSaA mUgksaus fnlacj 1995 esa nksuksa vihykfFkZ;ksa dh csn[kyh ds fy, dk;Zokgh lafLFkr dhA izR;FkhZx.k dk i{kdFku gS fd vihykFkhZ /kUukyky dk ftl nqdku esa vf/kHkksx gS] mldh izR;FkhZ Ø- 2 xksfoank dk dkjckj vkjaHk djus ds fy, okLrfod vko‘;drk gS] tcfd vU; vihykFkhZ esa] rqylhnkl lqjs‘kpanz ds vf/kHkksx esa tks nqdku gS mldh vko‘;drk izR;FkhZ gsear dks vius rS;kj oL=ksa dk dkjckj varfjr djus vkSj pkyw j[kus ds fy, gS ftls og orZeku esa HkkM+s ds LFkku ij pyk jgk gSA --- HkkM+k fu;a=d izkfkdkjh us csn[kyh ds nkos lkfcr ik, rFkk nksuksa vihykfFkZ;ksa dh csn[kyh dk funs‘k fd;kA nksuksa vihykfFkZ;ksa us mPp U;k;ky; ds le{k vf/kfu;e dh /kkjk 23&M- ds v/khu iqujh{k.k ;kfpdk,¡ izLrqr dhaA iqujh{k.k ;kfp;ksa dh vksj ls fd, x, izR;sd ladFku ij fopkj dj mPp U;k;ky; }kjk HkkM+k fu;a=d izkf/kdkjh ds vkns‘k ekU; Bgjkrs gq, iqujh{k.k ;kfpdk,¡ [kkfjt dj nh xbZaA muls O;fFkr gks dj ;g vihysa Qkby dh xbZ gSaA ¿ iSjk 2

       vfHkfu/kkZfjr % lg&Lokfeksa esa ls ,d Lokeh vdsys rFkk vius Lo;a ds vf/kdkj esa vfHk/kkjh dks fudkyus ds fy, okn Qkby dj ldrk gS rFkk vfHk/kkjh dks ;g izfrj{kk miyC/k ugha gS fd og okn pykus ;ksX; gksus dks bl vk/kkj ij iz‘uxr djs fd vU; lg&Lokfeksa dks okn esa i{kdkjksa ds :i esa la;ksftr ugha fd;k x;k FkkA tc csn[kyh dk;Zokgh dh fo"k;&oLrq laifÙk vusd Lokfe;ksa ds LokfeRo esa gks rc izR;sd lg&Lokeh vU; Lokfe;ksa ds lkFk la;qDr laifÙk ds izR;sd Hkkx rFkk izR;sd va‘k dk Lokeh gksrk gS rFkk tc rd laifÙk dk foHkktu ugha gks tk,] ;g ugha dgk tk ldrk fd og laifÙk dk dsoy Hkkfxd Lokeh ;k vkaf‘kd Lokeh gSA ;fn vU; lg&Lokeh vkifRrÙk ugha djrs rc og vU; lg&Lokfeksa dks la;ksftr fd, fcuk vdsys&gh vfHk/kkjh dh csn[kyh ds fy, okn pyk ldrk gSA ¼1976½ 4 ,l lh lh 184] ¼1977½ 2 ,l lh lh 814 rFkk ¼1989½ 1 ,l lh lh 444 voyafcrA ¿ iSjk 16

       ¼2½ LFkku fu;a=.k vf/kfu;e] 1961 ¼e-iz-½ && /kkjk 11&d] 12¼1½] 237d] 23&´ rFkk 45 && /kkjk 23&´ ds fo‘ks"k izoxZ esa vkus okyk Hkw&Lokeh && /kkjk 12¼1½ ds v/khu csn[kyh dk voyac ugha ys ldrk && mls /kkjk 23&d ds v/khu gh csn[kyh ds mipkj dh bZIlk djuk gksxhA

       fuokl vFkok fuoklsrj LFkku dh okLrfod vko‘;drk ds vk/kkj ij] vk/kkj vf/kfu;e dh /kkjk 23&d esa ;Fkk ifjHkkf"kr] vius vfHk/kkjh dh csn[kyh dh bZIlk djus okys ,sls Hkw&Lokeh dks v/;k; 3&d dk gh voyac ysuk gksxkA vf/kfu;e dh /kkjk 11&d esa micaf/kr gS fd v/;k; 3 ds mica/k] tgk¡ rd og v/;k; 3&d es fo‘ks"kr% micaf/kr fo"k; ls lacaf/kr gS] /kkjk 23&´ esa ifjHkkf"kr Hkw&Lokeh dks ykxw ugha gksaxsA vf/kfu;e dh /kkjk 45 esa Hkh micaf/kr gS fd og ekeys] ftUgsa fofuf‘pr djus ds fy, vf/kfu;e }kjk ;k mlds v/khu HkkM+k fu;a=d izkf/kdkjh dks l‘kDr fd;k x;k gS] flfoy U;k;ky; }kjk xzkâ ugha gSaA bu mica/kksa dk izHkko ;g gS fd vf/kfu;e dh /kkjk 23&´ ds v/khu ;FkkifjHkkf"kr Hkw&Lokeh flfoy U;k;ky; dk vkJ; ugha ys ldrkA

       ¼3½ LFkku fu;a=.k vf/kfu;e] 1961 ¼e-iz½ && v/;k; 3&d] /kkjk 23&d] 23&x rFkk 23&?k && flfoy izfØ;k lafgrk] 1908 && vk- 37 && csn[kyh ds fy, vf/kfu;e ds v/;k; 23&d esa micaf/kr laf{kIr dk;Zokgh && lafgrk ds vk- 37 esa laf{kIr okn ds fy, micaf/kr dk;Zokgh ds leku gS && /kkjk 23&x esa ;Fkk micaf/kr] fojks/k dh btktr iznÙk ugha dh xbZ gks rc vfHk/kkjh csn[kyh dk fojks/k ugha dj ldrkA ¿ iSjk 9

       ¼4½ LFkku fu;a=.k vf/kfu;e] 1961 ¼e-iz½ && v/;k; 3&d && Hkkjr dk lafo/kku && vuq- 14 && vf/kfu;e ds v/;k; 3&d ds v/khu mica/k && fof/kekU; gSa rFkk muls lafo/kku ds vuq- 14 dk vfrØe.k ugha gksrkA 1985 ts ,y ts 793 rFkk 2000¼2½ ts ,y ts 105 vuqeksfnrA ¼1980½ 1 ,l lh lh 290 rFkk ¼1984½ 2 ,l lh lh 75 voyafcrA ¿ iSjk 11

       ¼5½ LFkku fu;a=.k vf/kfu;e] 1961 ¼e-iz-½ && /kkjk 23&d rFkk 23&´ && vusd Hkw&Lokfeksa esa ls ,d /kkjk 23&´ ds fo‘ks"k izoxZ esa vkus okyk && HkkM+k fu;a=d izkf/kdkjh ds le{k csn[kyh ds fy, vkosnu pykus ;ksX; gSA

       LFkku ds vusd Hkw&Lokfeksa esa ls] ftuesa fo/kok lfEefyr gS] dsoy fo/kok }kjk viuh Lo;a dh okLrfod vko‘;drk vFkok mldh Lo;a dh rFkk mlds fookfgr iq=ksa vkSj mlds dqVqac ds lnL; larkuksa dh la;qDr vko‘;drk ds vk/kkj ij vfHk/kkjh dh csn[kyh ds fy, vkosnu vf/kfu;e dh /kkjk 23&´ ds lkFk ifBr /kkjk 23&d¼d½ ds v/khu HkkM+k fu;a=d izkf/kdkjh ds le{k l{ke gksxkA ¿ iSjk 14

       vf/kfu;e dh /kkjk 23&d¼[k½ ds fo‘ys"k.k ls nf‘kZr gksrk gS fd rn/khu vfHk/kkjh dh csn[kyh bZfIlr djus dk vkosnu pykus ;ksX; gS ;fn % ¼i½ LFkku fuoklsrj iz;kstu ds fy, HkkM+s ij fn;k x;k gS( ¼ii½ Hkw&Lokeh dks ¼d½ viuk dkjckj] vFkok ¼[k½ vius izkIro; iq=ksa vFkok vfookfgr iqf=;ksa esa ls fdlh dk dkjckj pykus vFkok vkjaHk djus ds fy, mldh okLrfod vko‘;drk gS( ¼iii½ Hkw&Lokeh ,sls LFkku dk Lokeh gS vFkok ml O;fDr ds Qk;ns ds fy, LFkku /kkfjr fd, gS ftls LFkku dh vko‘;drk gS( rFkk ¼iv½ Hkw&Lokeh vFkok ,sls O;fDr ds vf/kHkksx esa lac) ‘kgj vFkok uxj esa viuk Lo;a dk vU; dksbZ ;qfDr;qDrr% mi;qDr LFkku ugha gSA 1989 ts ,y ts 336 rFkk 1990 ts ,y ts 97 ¼iw.kZ U;k;ihB½ vuqeksfnrA ¿ iSjk 15

       ¼6½ LFkku fu;a=.k vf/kfu;e] 1961 ¼e-iz-½ && /kkjk 12¼1½ rFkk 12¼1½ ¼[k½ && vfHk/kkjh ds fo:) csn[kyh okn && mi&vfHk/kkjh dks leqfpr i{kdkj ds :i esa la;ksftr fd;k tk ldrk gSA , vkb vkj 1953 ,l lh 73 voyafcrA ¿ iSjk 18

       ¼7½ fof/kd lw= && tgk¡ vf/kdkj gS] ogk¡ mipkj Hkh gS && dksbZ Hkh nks"k mipkjjfgr ugha gksrkA ¿ iSjk 21

       ¼8½ flfoy izfØ;k lafgrk] 1908 && /kkjk 9 && fdlh dkuwu }kjk oftZr ugha gks rc izR;sd O;fDr dks flfoy okn lafLFkr djus dk varfuZfgr vf/kdkj gSA

       izR;sd O;fDr dks flfoy Lo:i dk okn ykus dk varfuZfgr vf/kdkj gS rFkk tc rd okn dkuwu }kjk oftZr ugha gks] dksbZ Hkh vius tksf[ke ij viuh ilan dk okn yk ldrk gSA nkok fdruk Hkh rqPN D;ksa ugha gks] fdlh Hkh okn dk ;g mÙkj ugha gks ldrk fd fof/k }kjk okn ykus dk ,slk dksbZ Hkh vf/kdkj iznÙk ugha gSA okn pykus ;ksX; gksus ds fy, fof/k ds izkf/kdkj dh vko‘;drk ugha gS rFkk ;g i;kZIr gS fd okn fdlh dkuwu }kjk oftZr ugha gSA ¼1974½ 2 ,l lh lh 393 voyafcrA ¿ iSjk 22

       ¼9½ flfoy izfØ;k lafgrk] 1908 && /kkjk 17 rFkk 20 && fookn/khu laifÙk fofHkUu LFkkuksa ij fLFkr && izfroknhx.k dk fuokl fofHkUu LFkkuksa ij okn ml U;k;ky; esa Qkby fd;k tk ldrk gS ftldh vf/kdkjrk ds Hkhrj laifÙk dk dksbZ Hkh Hkkx fLFkr gks vFkok izfroknhx.k esa ls dksbZ ,d fuokl djrk gksA , vkb vkj 1936 ih lh 189 voyafcrA ¿ iSjk 24

       ¼10½ LFkku fu;a=.k vf/kfu;e] 1961 ¼e-iz-½ && /kkjk 12¼1½ rFkk 23&d && csn[kyh ds fy, okn ;k vkosnu && fdl ds }kjk rFkk dSls Qkby fd;k tk ldrk gS && fl)kar vf/kdfFkrA

       ¼i½ tgk¡ csn[kyh ds fy, nkok vf/kfu;e dh /kkjk 23&´ esa ifjHkkf"kr ik¡p izoxksZa esa ls fdlh ,d oxZ ds Hkw&Lokeh ;k lg&Hkw&Lokfeksa dh] tks lg&vkosnd ds :i esa la;qDr ugha gq, gSa] vkifRrÙk ds fcuk ,dek= vkosnd ds :i esa Qkby fd;k x;k gS rFkk csn[kyh ds nkos dk Lo:i vf/kfu;e dh /kkjk 23&d ¼[k½ ls vko`Ùk gksrk gS] ogk¡ dk;Zokgh dsoy HkkM+k fu;a=d izkf/kdkjh ds le{k gksxhA

       ¼ii½ tgk¡ csn[kyh ds fy, nkok ,sls Hkw&Lokeh ;k lg&Lokeh }kjk Qkby fd;k x;k gS tks /kkjk 23&´ esa ifjHkkf"kr fdlh Hkh oxZ dk ugha gS rFkk /kkjk 23&´ esa ifjHkkf"kr oxksZa esa ls ,d esa vkus okyk@okyh lg&Hkw&Lokeh@Hkw&Lokfeuh lg&oknh ds :i esa la;ksftr ugha gS] ogk¡ flfoy U;k;ky; esa lafLFkr okn ds :i esa gh Qkby fd;k tkuk gksxkA

       ¼iii½ ;fn dk;Zokgh ,sls lg&Lokeh Hkw&Lokfeksa }kjk vkjaHk dh xbZ gSa ftuesa ls ,d ;k vf/kd /kkjk 23&´ izoxZ dk gS ;k ds gSa tcfd dqN vU; og gSa tks /kkjk 23&´ ds v/khu ^Hkw&Lokeh* dh ifjHkk"k ds v/khu ugha vkrs rFkk vfHkopfur vko‘;drk ls oknhx.k ;k vkosndx.k ds :i esa lwphc) lc Hkw&Lokfeksa dks lkewfgd :i ls okn&gsrqd miyC/k gksrk gS] rc U;k;ky; dk pquko Hkw&Lokfeksa ij fuHkZj djrk gSA og v/;k; 3&d ds v/khu HkkM+k fu;a=d izkf/kdkjh ds le{k vkosnu Qkby dj ldrs gSa vFkok vf/kfu;e dh /kkjk 12 ds v/khu flfoy U;k;ky; esa flfoy okn Qkby dj ldrs gSa( nksuksa n‘kkvksa esa dk;Zokgh l{ke rFkk pykus ;ksX; gksxhA ¿ iSjk 25

       ¼11½ LFkku fu;a=.k vf/kfu;e] 1961 ¼e-iz-½ && /kkjk 12¼1½ ¼p½ rFkk 23&d¼[k½ && vkuqdfYid LFkku && Hkw&Lokeh ds LokfeRo esa gksuk gksxk rFkk mruk gh mi;qDr gksuk pkfg, ftruk ifjlj gS && Hkw&Lokeh dks HkkM+s ds LFkku ij cus jgus ds fy, foo‘k ugha fd;k tk ldrkA ¼1999½ 6 ,l lh lh 222 voyafcrA ¿ iSjk 27