KHEMCHAND DAYAUI & CO. v. MOHAMMEDBHAI CHANDBHAI

KHEMCHAND DAYAUI & CO. _v._ MOHAMMEDBBAI CHANDBHAI _March_ 2<4, 1969 A [J. C. SHAii, V. RAMASWAMI ANU A. N. GROVER, JJ.] B _AhmMabad_ _City Courts Act,_ 1961-Sulu _undu_ _Bombay_ _Rentl_ _Hotel_ A _Lodging llouse Rates Control_ _Act_ 57 _of_ 1947 aJ _applied to the State_ _of_ _Oujarat u:clasively triable by court_ _of Small Causes_ _Ahmedabad-Rule_ _5_ _under_ _Bombay_ _Act_ _making procedure under Presidency_ _Small_ _CaU1es_ _Courts_ _Acl_ 15 _of_ 1882 _applicable to 1uch suits and proceedings-Ahmeda-_ ._ _Small Causes Court whether empowered_ _to_ _issue_ _di.Jtre.u_ _warrant for_ ###### recc>ery of municipal taxes by Its power under s. 53 of Act 15 of 1882- c _Vires_ _of Rule_ _5._ Jurisdiction to try suilS and pr~ between landlords and tenanta under the Bombay Rents, Hotel and Lodging House Rateo Control Act 57 •f 1947 was by virtue elf s. 28 o! the Act given to Small Cause Courll. Under 1: 49 of the Act the State Government was authorhed _to_ mate rules for the pdrpose of giving effect to the provisions of the Act and ia "'1icular _to_ make rules among other subjocts, for the procedure to be D followed in trying or hearing suits and proceedings including proceedin• for execution of decrees and distr,. warrants. For these purposes the Government elf Bombay under r. _5_ framed by it provided that the prococlure under the Presidency Small Cause Courts Act, 1882 would be followed. By the enactment c;f the Bombay Reorganization _Act_ 11 of 1960 a leparlte State of Gujarat was constiruted out of the territory which formed the State of Bombay, anll the area within the city limits of Ahmcdabad formed part c/f the State of Gujarat The Legislature of the State of E Gujarat enacted the Ahmedabad City Courts Act 19 of 1961 which by ~ 17 exteoded the Presidency Small C•use Courts Act, 1882 _(IS_ of I 882) as well as the Bombay Renb Hotel and Lodging House Rates Control Act 57 of 1947 to the City of Ahmedabad with suitable modifications and amendments. Jurisdiction _to_ try suits under the Bombay Act was by amend. •ent of s. 28 thereof given to the Court of Small Causes Ahmedabad. The appellants were tenant! of a house owned by the respondent in t' Ahmedabad. Apart from the rent the appellants had also agreed _to_ pay •unicipal taxes and electricity charges. In I 963 the appellants filed a suit in the Court of Small Causes Ahmedabad for an order _intu a/ia_ determining the standard rent of the premise\ io exercise of the power under s. II of Bombay Act 57 of 1947. The said court on an application flied by the appellants fixed the contlllctual rent as the 'interim staodard rent' and directed the appellants to pay rent and municipal taxes, which the appellants accordingly deposited in Court. The Court permitted the res- G ponclent to withdraw the rent so deposited but not tho municipal taxeo. The respondent then obtained an order 'for the issue of a distress warrnt uader s. 53 of the Presidency Small Cause Courts Act 15 of 1882 reotl with r. _5_ of the Rules framed under Bombay Act _57_ of 1947 for recovery of the amount due as municipal taxes. Distress was levied aod the order was confirmed. A revision application in the High Court of Gujarat was rejected. In their appe11I against the High Court's ord.,. the appellanla ursecl : (i) that r. _5_ of the Rules framed under s. 49 of the Bombay Act H 57 of 1947 was _ultra vires_ the Slate Government; (ii) that the Court of Small Causes Ahmedabad had no jurisdiction _to_ pus an order issuing a diotreu warrant in a proceeding under Bombay Act 57 of 1947 especially A B ###### c D E G H KiiEMCHAND _V._ MOHAMMEDBHAI 8 I \\'hen an application under s. 11 was pending; (iii) tha~ the municipal taxes and electricity charges did not constitute rent which could be re· covered by the issue of a distress warrant. HELD : (i) Rule _5_ was framed under Bombay Act 57 of 1947 in exercise of the authority conferred by s.,49(2) (iii). After the enactment of the Ahmedabad City Courts Act, 1961, r. _5_ as originally 'framed by the trovernment continued in force by virtue of s. 87 of the Bombay Reorga· nizi1tion Act 1 I of 1960, and applied to the Ahmedabad Small Causes C'ourt. When r. _5_ was framed under Bombay Act 57 of 1947 it was not _ultra vires_ and it \Vas not shown to have become _ultra vires_ after the enactment of the Ahmcdabad City Courts Act in its application to the City o'f Ahmcdabad. [85 F·G] (ii) The distress warrant issued by the Court of Small Causes Ahmedabad against the appellant \Vas within its pov~:ers. By the enactment of the Ahmedabad City C'.ourts Act, 1961, the proceedings before the Court of Small Causes at Ahmedabad were governed bv that Mt and by virtue of the amen~ment made in s. 28 of Bombay Act 57 of 194'7 it became a court of exclusive jurisdiction to try suits, proceedings, claim3 and questions arising under that Act. Being a court governed by the Presidency Small Causes Courts Act, the Ahmedabad Court of Small Causes was competent to exercise. subject to the Ahmedabad City Courts Act, all the powers which a Presidency Small Cause Court could exercise. Power to issue a distress warrant being expressly conferred by s. 53 _df_ the Pres;dency Small Cause Courts Act upon the Courts governed by it, the Court of Small Causes Ahmedabad, was competent to exercise that power. f85 D-EJ Section 28 does not make the Court of Small Causes trying suit under the Bombay Ac! a special Court : it is a court which is competent to exercise all the powers conferred on it under the statute which governs it. Its po\ver to issue distress warrant could therefore be exercised even in respect of suits and proceedings \Vhich were exclusively triable by it by virtue of the Bombay Act 57 of 1947. [85 Hl ?endency of an application for fixation of standard rent does not suspend the court's power to issue distress ~'arrant, for until standard rent is determined or an interim order is. made, -rent at the contractual rate is payable and process for recovery by distress warrant may always be adopted. In the present case the amount of municipal tax.es was due and ii was payable by the appellants. Though deposited in Court it could not he \\'ithdrawn by the respondent. The municipal taxes were therefore in arrears and a distress warrant could be applied for under s. 53 of 1he Presidency Small Cause Court by the respondent. It was not necessary for the respondent to approach a higher court against the erroneous order of the Sma11 Cause Court preventing him from recovering the amount of municipnl tnx:es. f86 B-Gl (iii) By the express terms of the tenancy the appellants had undertaken to pay the municipal taxes and electricity charges as part of the rent : it \vas not open to them to contend that these taxes and charges ~\·ere not rent recoverable by the issue of a distress warrant. [83 H~84 Al CIVIL APPELLATE JURISDICTION : Civil Appeal No. 808 of 1966. Appeal by special leave from the judgment and order dated September 3, 1965 of the Gujarat High Court in Civil Revision Application No. 244 of 1965. •:z SUPREME COUllT l.BPOUS (1970J I S.C.R. _Arun H. Mehta_ and/. _N. Shroff,_ for the appellant. _S._ _T._ _Desai,P._ _C._ _Bhartari, J.B. Dadachanji_ and _0. C._ _Mathur,_ for the respondent. The Judgment of the Court was delivered by **SllU, J.** The respondent is the owner of a house in the tow11 of Ahmedabad. The appellants arc the tenants of that house at **a** monthly rental of Rs. 2,171/-. Under the agreement of leiuc the appellants were to pay out of the agreed rent Rs. 810/- per month, and the balance was to be appropriated towards a loan advanced by them to the respqndent for constructing the house. The appellants had also agreed to pay municipal wes and electricity charges. The appellants filed suit No. 1308 of 1963 in the Court of the Small Causes, Ahmedabad, for an order, _inter alia,_ determini11& the standard rent of the premises in exercise of the power under . s . .11 of the Bombay Rents, Hotel and Lodging House Rates Cm trol Act 57 of 194 7. The Court of Small Cause., Ahmedabad, on an awlication filed by the appellants fixed the contractual rent as "interun standard rent" and directed the appellants to pay the rent and municipal taxes. P.ursu~t _to_ this order, the appellants deposited Rs. 2,403/- as rent and Rs. 8,921.25 due as municipal - taxea for the year 19(\4-65. An application by the respondent to withdraw the amount deposited in Court was resisted by the appellants. The Court permitted the respondent to withdraw IU. 2,403/- but not the municipal taxes. The respqndent the11 obtained an order for the issue of a distress warrant under s. 53 of the Presidency Small Cause Courts Act 15 of 1882 read with r. _5_ of the Rules framed under the Bombay Rents, Hotel and Lodging House Rates Colltrol Act, 1947, for recovery of the 11mount due as municipal taxes. Distress was levied, and the order **was** confirmed. A revision application moved in the High Court _ol_ Gujarat against that order was rejected. In support of this appeal counsel for the appellants urges that r. _5_ of the Rules framed under s. 49 of the Bombay Rents, Hotel and Lodging House Rates Control Act 57 of 1947, is _ultra vires_ the State Government; that the Court of Small Causes Ahmedabad ##### au in any event no jurisdiction to pass ah order issuing a distrels 'Warrant when trying a suit or proceeding under Bombay Act 57 of 194 7 especially when an application for determination of stan dard rent under s. 11 of the Act is ~ing; and that the municipal taxes and electricity charges do not constitute rent which may be recovered by the issue of a distress warrant. By the express terms of the tenl\l!Cy the appellants had undcr**1akea** to pay the municipal taxes and electricity charges as part of II c **B** #### ' G **H** B ##### c 0 E JI' G II KHEMCHAND _v._ MOHAMMBDBHAI _(Shah,_ J.) a 3 the rent : it is not open to them to contend that they are not rent reco'tlerable by the issue of a distress warrant. The last brancll of the argument has, therefore, no force. The relevant provisions of the Bombay Ronts, Hotel aad Lodgllij: House Rates Control Act 57 of 194 7 and other statutes Yt'hich nave a bearing may first be noticed. Bombay Act 57 of 194 7 was intended to control rents and to confer protection against eviction upon tonants of premises in certain urban areas . in· the Province of Bombay. By s. 28 of the Act certain courts' 1!'ere designated as courts of exclusive jurisdiction to entertain and try suits and proceedings between a landlord and tenant, relat- • ing to recovery of. rent or possession to which the provisions Of the Act applied, ·and ·also to decide claims or questions arising under the Act. Section 28 as originally enacted aincl later amended by Bombay Acts 58 of 1949 and 15 _ol_ f952, insofar as it is material reads: " ( 1) Notwithiltandingj anything oontained 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 itli jurisdiction, (a) in Greater Bombay, the CoUrt of Small Causes, Bombay; ( aa) in any area for which, a Court of Small Causes . is established under the Provincial Small Cause Courts, Act, 1887, such Court and (b) . ehall have jurisdictiQn to entertain and try any suit or proceedhlg 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 8ili)' clainI or question· arising out _ol_ this Act or any of its provisions and subject to the . provisions of subsection (2), no other \:(lurt shali have jurisdiction to entertain any such suit, proceeding or application or to deal. with such claim or question. " Section 28 did not set up new Courts to try suits . or proceedings between laincllords and tenants : it invested existing courts with exclusive jurisdiction to try suits and proceedings of the nature set out and claims or questions arising under the Act. Section 31 of the Act provides, _inter alia,_ that the courts· specified in s. 28 · shall follow the prescribed procedure in trying and hearing suil8, proceedings, applicatiQDs and appeals and in executing orden ###### • SUPREME COURT REPORTS ( 1970] I S.C.R. made by them. Section 49 authorises the State Government to make rules for the purpose of giving effect to the provisions of the Act and in particular to mali:e rules, among other subjects, for the procedure to be followed in trying or hearing suits proceedings (including proceedings for execution of decree; and distress warrants), applications, appeals and execution of orders. Pursuant to the authority conferred, rules were framed by the Government of Bombay and r. 5 which dealt with the procedure to be followed by the Court of Small Causes, Bombay, for suits, proceedings, appeals, etc. provided insofar as it is material : "In such of the following suits and proceedings as are cognizable by the Court of Small Causes, Bombay, on the date of the comina into force of these Rules, namely:(1) ( 2) proceedings under Chapter VII and VIII of the Presidency Small Cause Courts Act, 1882, and (3) proceedings for execution of any decree or order passed in any such suit or proceedings, the Court of Small Causes, Bum bay, shall follow the practice a.nd procedure provided for the time being (a) in the said Act, except Chapter VI thereof, and (b) in the rules made under section 9 of the said Act." By the enactment of the Bomt>ay Reorganization Act 11 of 1960 a separate Sl'ate _ol_ Gujarat was constituted out of the territory which formed the State of Bombay, and the area within the city limits of Ahmedabad formed part of the State of Gujarat. By the Gujarat Adaptation of Laws (State and Concurrent Subjects) Order, 1960, cl. (a) of sub-s. (1) of s. 28 of Bombay Act 57 of 1947 as it was originally enacted was deleted. The Legislature of the State of Gujarat enacted the Ahmedabad City Courts Aet 19 of 1961 which by s. 17 provided that the Presidency Small Cause Courts Act, 1882 (XV of 1882), shall extend to and come into force in the City of Ahmedabad on and from tke appointed day. By s. I 8 it was provided : "The Presidency Small Cause Courts Act, 1882 (XV) of 1882), and the Bombay Rents, Hotel and Lodging House Rates Control Act, 1947 (Born, LVII of 1947), shall in their application to the City of Ahmedabad stand amended in th~ manner and to the extent specified in the Schedule." By s. 19 it was provided : "With effect on and from the appointed day ..... . the Provincial Small Cause Courts Act, 1887 (IX of A B ###### c D G H **A** **B** c **D** **E** **F** G **H** ## KliEMCHAND v. MOHAMMEDBHAI _(Shah,_ J.) 85 1887), and all mles, notifications and orders made thereunder shall cease to apply to, or be in force, in the City _ol_ Ahmedabad, " By the Schedule certain amendments were made in the Presidency Small Cause Courts Act, 1882, in its application to the City of Ahmedabad. By cl. 13 of the Schedule, s. 50 of the Presidency Small Cause Courts Act was to apply to every prnce within the City of Ahmedabad. Certairi amendments were also made in s. 28 of the Bombay Rents, Hotel and Loclging House Rates Control Act, 1947, and in sub-s. (1) of s. 28, before cl. (aa) the following clause was inserted : " (a) in the City of Alunedabad, the Court of Small Causes of Ahmedabad," By the einactment of the Ahmedabad City Courts Act, 1961, the proceedings before the Court of Small Causes at Ahmedabad were governed b,Y that Act and by virtue of the amendment made in s. 28 of Bombay Act 57 _of_ 1947 it became a Court of exclusive jurisdiction to try suits, proceedings, claims and questions arising under that Act. Being a Court governed by the Presidency Small Cause Courts Act, the Ahmedabad Court of Small Causes was competent to exercise, subject to the Ahmedabad City Courts Act, all the powers which a Presidency Small Causes Cour.t may exercise. Power to issue a distress warraint being expressly conferred by s. 53 of the Presidency Small Cause Courts Act upon the Courts governed by it, the Court of Small Causes, Ahmedabad, was competent to exercise that power. Rule 5 was framed under the Bombay Act 57 of 1947 in exercise of the authority conferred by s. 49(2)(iii). After the enactment of the Ahmedabad City Courts Act, 1961, r. 5 as originally framed by the Government _ol_ Bombay continued in force by virtue of s. 87 of the Bombay·Reorganization Act 11 of 1960, lli!ld applied to the Ahmedabad Small Causes Court. When r. _5_ was framed under Bombay Act 57 of 1947 it was not _ultra_ _vir11s,_ and it is not shown to have become _ultra vir11s_ after the enactment of **the** Ahmedabad City Courts Act in its application to the City of Ahmedabad. The argument that s. 28 sets up **a new** set of Courts with special powers and jurisdiction is without substance. Section 28 merely confers upon the exis\iiilg Courts exclusive jurisdiction in respect of matters relating to rossession _ol_ premises and recovery of reilt and to determine claims and questions arising under that Act. On ·that account it does not become a Special Court : it is **a** court which is competent to exercise all the powers which are conferred UpQ!l it by. virtue of its constitution under the statute which goyern,s it. The Court of Small Causes at Ahmedabad had, SUPRl!MI! COIJlt.T llBPORTS [1970] I S.C.R. therefore, power to issue distress warrant and that power could be exercised even in respect of suits and proceedings which were exclusively triable by it by virtue of the Bombay Act 57 of 1947. We arc also unable to hold that so long as an application for fixation of standard rent is pending, the Court's jurisdictiqn to issue a distress warrant remains suspended. Until standard rent is determined, or an interim order is made, rent at the contractual rate is payable and process for recovery by distress warrant may always be adopted. Section i 1 _ol_ Bombay Act 57 of 1947 confers upon the Court power to fix standard rent and permitted increases in certain cases. The Court _is_ also competent to determine interim standard rent, and direct payment pcmi!ing final determination of standard rent. The appellants applied for fixation of standard rent and invited the Court to pass an order firing interim standard rent and the Court of Small Causes proceeded to pass the order for payment of rent and municipal taxe;. In the present case there was an express order of the Court requiring the appellants to deposit in Court Rs. 810 /- per month and also to deposit municipal taxes. The Court of Small Causes ordered that the amount deposited by the amiellants towards municipal taxes shall oot be paid over to the llndlord. The amount was on that account not available to the respondent. The respondent wu unable to pay the taxes and the Municipality threatened to attach the property. The amount of muniCipal taxes was due and it was payable by the appellanta. Though deposited in Court, it could llOt be withdrawn by the respondent. The municipal taxes were, therefore, in arrears and a distress warrant could be applied for under s. 53 _ol_ the Presidency Small Cause Courts Act by the respondent. It was urged that the appellants had.to pay the amount _ol_ interim staodard rent twice over : once when they deposited it in the Court and again when they satisfied the demand to avoid execution of the distress warrant. The landlord undoubtedly cannot obtain the amount twice over. But that docs not mean that when the tenant has not made the amount available to the landlord the application for distrcss was not maintainable. A ### • ###### c D E r application for distrcss was not maintainable. 1bc argument that the erroneous order passed by the Court of Small Causes preventing the landlord from recovctjng the amount of municipal taxes could have been got corrected by approaching the superior courts and so Jong as that order stood, no dmt. could be levied, ignores the fact that the appellants had the Court of Small Call8CS _to_ pass that order. In our t, # there was no bar to the respondent maintaining the application for = distress. G The appeal fails and is dismilled with costs. O.C. _A,,,.al_ _dilrrtmei._ H