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  • Rent Control Act
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  • Rent Control Act
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Judgment Summary: B.N. Kirpal, J. — Civil Revisions 80 to 82 of 1980

Factual and Procedural Background

The judgment disposes Civil Revisions 80 to 82 of 1980. The landlady (petitioner), owner of House No. 439, Bhola Nath Nagar, Shahdara, Delhi, challenged an order of the Rent Controller, Delhi dated 23 October 1979 that dismissed eviction petitions the petitioner filed against certain tenants of her house.

The petitioner’s husband was a government employee occupying government-allotted accommodation at Turkman Road, New Delhi. The government issued an order affecting occupants of government accommodation who owned residential property in Delhi. On that ground and on the ground of bona fide personal need under Section 14(1)(e) of the Rent Control Act, the petitioner filed eviction petitions against seven tenants.

During proceedings one tenant vacated, the petitioner withdrew three petitions, and three petitions were dismissed by the Rent Controller — those dismissals are the subject of these revisions. The petitioner’s family was said to consist of herself, her husband, two daughters and two sons (one son married). The petitioner alleged insufficient accommodation at her current house and that the husband’s separate property in Old Delhi (Gali Mandir Wali, Sir Sayyad Ahmed Road / Darya Ganj) was occupied by a tenant or used for commercial purposes and was unsuitable for her health (diabetes and hypertension) and general needs.

Legal Issues Presented

  1. Whether the petitioner (landlady) could invoke Section 14A of the Rent Control Act when the government allotment was in the name of her husband and not in her own name.
  2. Whether the Rent Controller erred in holding that the petitioner did not bona fide require the tenants' accommodation (i.e., whether the finding of lack of bonafides was justified).
  3. Whether vacant or other accommodation in the husband’s possession (Darya Ganj) could be taken into account in adjudging the petitioner’s bona fide need, particularly where the family is to be treated as a single unit.
  4. Whether withdrawal of some eviction petitions (and surrender of a room by a tenant) permitted an inference that the petitioner’s need had been satisfied.
  5. Whether the bona fide requirement is purely a subjective state of mind requiring the landlord to personally testify, or whether it is an objective question for the Court to decide on the evidence.

Arguments of the Parties

Petitioner (Landlady)

  • The petitioner alleged a bona fide requirement for additional accommodation in the subject house on grounds of family needs and the unsuitability of the husband's alternate accommodation (Gali Mandir Wali / Darya Ganj) because it was in a slum area and occupied by a tenant; she also cited her health (diabetes and hypertension) making the Old Delhi premises unsuitable.
  • She relied on Section 14(1)(e) (bonafide personal need) to seek eviction of tenants and sought possession of sufficient rooms to accommodate family members together.
  • The petitioner contended that the withdrawal of some petitions did not establish satisfaction of her need and that she was entitled to choose which tenants to proceed against.

Respondents (Tenants)

  • The respondents contended that the petitioner had more than sufficient residential accommodation and thus no bona fide need; they stated that the husband's house had become vacant (tenant Ishwar Dass left) and parts of the subject premises had been vacated by some tenants (Miss Tara Gupta, Jagan Nath Chatterjee), which together met the petitioner's requirements.
  • They argued that findings of the Rent Controller were factual and should not be disturbed on revision.

Table of Precedents Cited

Precedent Rule or Principle Cited For Application by the Court
Krishan Kumar v. Vimla Sehgal, 1976 R.C.R. 249 Held that a landlord may reasonably require a separate room for each member of his family; a landlord cannot be compelled to compress the family into limited accommodation. The Court relied on this authority to criticise the Rent Controller’s failure to assess the family’s collective need; it supported the conclusion that the petitioner’s demand for additional rooms could be bona fide and should not be dismissed as unreasonable.
Shri Krishan Chand Chopra v. Shri Satya Paul Chaddha, 1974 R.C.R. 578 Recognised that a landlord’s requirement for separate rooms for dining and sitting is not whimsical or fanciful. The Court cited this case to reinforce that claims for ordinary separate functional rooms (sitting/dining) can be legitimate considerations in assessing bona fide need.
Nanalal Goverdhandas & Co. v. Smt. Samratbai Lilachand Shah, A.I.R. 1981 Bombay 1 Held (by that court) that bona fide requirement is a state of mind and the landlord must personally depose to it; if the landlord does not testify the requirement may not be proved. The Court expressly declined to follow this approach: it rejected the view that bona fides is purely subjective and must be proved only by the landlord's personal testimony. The Court held bona fides is an objective question to be determined on evidence.
Khurshid Haider v. Mst. Zubeda Begum, 15 (1979) DLT (SN) 233 Raised a similar objection (landlord not appearing in the witness box) which was not accepted by the court in that case. The Court cited this decision to support its position that the landlord’s absence from the witness box does not necessarily defeat a bona fide claim if the admitted facts on record substantiate the need.

Court's Reasoning and Analysis

The Court examined the Rent Controller’s findings and the evidence on record and proceeded through a sequence of legal analyses, applying statutory provisions and precedents referenced in the record:

  1. Section 14A: The Court observed that Section 14A could not be invoked by the petitioner because government-allotted accommodation was in the husband’s name and not the petitioner’s. Therefore Section 14A did not provide a cause of action for the petitioner.
  2. Consideration of husband’s alternate accommodation: The Rent Controller had considered the husband’s Darya Ganj premises (vacant or used for commercial purposes) as meeting the petitioner’s need. The Court held that this was a misdirection: the need under the Rent Control Act must be assessed for the family as a unit and the availability of separate accommodation in the husband’s name could not automatically be treated as meeting the petitioner’s bona fide need — especially where the Rent Controller had not found that the family could be accommodated there without disrupting family life.
  3. Assessment of bonafide requirement: The Court found that the Rent Controller erred in (a) relying on the number of rooms alone without examining their size and use; (b) treating storage rooms and a bathroom as equivalent to living accommodation; and (c) inferring lack of bona fides from the withdrawal of some petitions and partial surrender of a room by a tenant, without putting relevant questions to the petitioner’s husband or otherwise establishing why petitions were withdrawn.
  4. Nature of "bona fide" requirement: The Court rejected the submission (based on a Bombay decision) that bona fide requirement is a purely subjective state of mind which must be proved exclusively by the landlord’s own testimony. Instead the Court held bona fides is an objective question to be decided on the evidence before the Court; the Rent Control Act contains no express requirement that the landlord personally testify. The Court cited Khurshid Haider as a precedent where a similar objection failed.
  5. Quantification of need and selective eviction: The Court considered the admitted sizes and uses of the rooms in the petitioner’s possession and found that several small rooms were practically unusable for living (stores, very small dimensions). After evaluating the family composition and reasonable room requirements (drawing room, dining room, kitchen, bathroom, bedrooms for parents/children), the Court concluded the petitioner’s minimum additional requirement was two rooms.
  6. Identification of appropriate eviction target: The Court determined that two specific rooms (measuring 8'×14' and 8'×10') in the occupation of one tenant, Vinod Kumar Dubey, if recovered, would meet the petitioner’s need. The Court noted the petitioner’s own offer before the Rent Controller not to press eviction against Dig Vijay Pal Singh if eviction against Babu Ram and Vinod Kumar Dubey were allowed, and applied that position to justify allowing eviction only against Vinod Kumar Dubey while dismissing the other petitions that sought eviction of different tenants.

Holding and Implications

Core Ruling: The Court allowed the revision in part and altered the Rent Controller’s order in respect of one tenant.

The specific operative outcomes were:

  • Civil Revision No. 80 of 1980 — Allowed: the Rent Controller’s dismissal of the eviction petition against Vinod Kumar Dubey was quashed and orders of eviction were directed to be passed against Vinod Kumar Dubey.
  • Civil Revision Nos. 81 and 82 of 1980 — Dismissed: the Court upheld the Rent Controller’s dismissal of those petitions (i.e., eviction petitions against the other tenants in those revisions did not succeed).
  • Practical directions: Vinod Kumar Dubey was given six months from the date of the judgment to vacate the premises. The parties were directed to bear their own costs.

Implications: The decision resolves the specific disputes between the parties by permitting eviction of one tenant whose accommodation occupied rooms that, if recovered, would satisfy the petitioner’s objectively assessed bona fide need. The Court emphasised that bona fide requirement is an objective inquiry for the court and that alternate accommodation in the husband’s name cannot automatically defeat a landlord’s claim when family unity and suitability (including health considerations) are relevant. The judgment did not purport to lay down a new overarching precedent beyond its application of existing authority and statutory interpretation to the facts of this case.

Outcome summary (concise): Civil Revision No. 80 allowed (eviction ordered against Vinod Kumar Dubey; six months to vacate); Civil Revisions Nos. 81 and 82 dismissed; parties to bear their own costs.

    Uma Rani v. Vinod Kumar Dubey .

    B.N Kirpal, J.:— This judgment will dispose of Civil Revisions 80 to 82 of 1980. In all these petitions the landlady is seeking to challenge the order of the Rent Controller, Delhi dated 23rd October, 1979 whereby the Rent Controller, Delhi had dismissed the eviction petitions filed by the landlady.

    2. The petitioner is the owner of House No. 439, Bhola Nath Nagar, Shahdara, Delhi-32. In the said house there were a number of tenants. The petitioner's husband was a Government employee and was in occupation of government accommodation at Turkman Road, New Delhi. The government had passed an order requiring the persons occupying the government allotted accommodation to either vacate the premises or, in default, incur certain obligations on the ground that those allottees were owning residential accommodation in Delhi. On the aforesaid ground and also on the ground of bonafide personal need under Section 14(1)(e) of the Act the petitioner filed eviction petitions against seven tenants. During the pendency of the proceedings, one tenant vacated the premises and three petitions were withdrawn by the petitioner and three petitions were dismissed by the Rent Controller, against which the present revision petitions have been filed. According to the petitioner her family consists of herself, her husband, two daughters and two sons, out of which one son is married. According to the netitioner the accommodation which was in her occupation was insufficient and she bonafide required the tenants to vacate the premises. It was also stated in the eviction petitions that the petitioner's husband owned a house in Gali Mandir Wali, Sir Sayyad Ahmed Road, New Delhi, but the same was in occupation of a tenant, namely Sh. Ishwar Dass, and as that property was situated in a slum area the same could not be vacated. It was also alleged in the petition that the petitioner herself was an acute patient of diabeties and hypertension and the said property belonging to the husband was situated in a very small street of old Delhi and was not suitable for her. The case of all the respondents was almost common. Their contention was that the petitioner had a more than sufficient residential accommodation. It was stated by them that the aforesaid house owned by her husband had fallen vacant, as the tenant Sh. Ishwar Dass had left the said premises and, therefore, the petitioner did not bonafide require any further premises. It was also mentioned that Miss. Tara Gupta, one of the tenants in the house in question, had vacated some part of the premises in her occupation and another tenant Sh. Jagan Nath Chatterjee had vacated two rooms. According to the respondents on the petitioner acquiring the aforesaid premises vacated by Miss Tara Gupta and by Jagan Nath Chatterjee and by taking into consideration the accommodation available with her husband at Darya Ganj, the petitioner cannot be said to bonafide require more premises.

    3. Evidence was led by both the parties before the Rent Controller, Delhi. The Rent Controller held that the petitioner was in occupation of the following accommodation:

    “One room 14′x16’, 2 rooms, 8′x14’, one room 7′x16’, one room 8′x7’, one room 8′x10’, one room 5.6′X6’, one room 5.9′X 11’ and one room 5.9×11’.”

    4. Before me it is admitted by the respondents that the petitioner is in occupation of only one room of the size of 8′x14′and not two rooms as has been held by the trial court in paragraph (2) of its order. The trial court further held, with regard to the use of the said rooms, that according to the petitioner:

    “room 14′x16’ is being used as a drawing room, room of the size of 8′x14’ is being used as dinning room, and one room 8′X 10′is being used as a kitchen, room of the size of 7′x16’ is being used as a bed room for his married son, room of the size of 16′x7’ is being used as a store, room of the size of 5.9′x11′is being used as a store for storing goods and edibles.”

    5. Having enumerated the rooms in the aforesaid manner the trial court further observed that, “the two rooms which were vacated by Sh. J.N Chatterjee and one room which was vacated by Miss Tara Gupta are also in the possession of the petitioner.” The implication of this observation appears to be that the Rent Controller was of the view that the petitioner had the said three room which were vacated by J.N Chatterjee and Miss Tara Gupta, in addition to the other rooms mentioned above. Before me it is admitted by the counsel for the respondents that this is not so. The rooms vacated by Sh. J.N Chatterjee and Miss Tara Gupta are included in the eight rooms the use of which has been shown by the petitioner. The Rent Controller further held that the ground regarding Section 14A of the Act was not pressed before him and in any event it was the petitioner's husband who was in government service and as such no cause of action for invoking the said provisions was available to the petitioner. After taking note of the petitioner's submissions that the premises at Darya Ganj owned by the petitioner's husband were being used for commercial purposes by her married son, the Rent Controller hold that the petitioner's husband could not be deemed as being dependent upon the petitioner for the purposes of accommodation. According to the Rent Controller this accommodation could meet the requirement of the married son. He further observed that the fact that the premises at Darya Ganj were being used for commercial purposes, and not for residence, showed that the need of the petitioner in the present eviction petitions was not bonafide. He further held that the lack of bonafides was also established by the fact that, though seven eviction petitions had been filed, the petitioner withdrew petitions against certain tenants. According to the Rent Controller, Miss Tara Gupta was a tenant in respect of six rooms, three of which were in the ground floor. He held that there was no reason to withdraw the petition against Tara Gupta as the need of the petitioner could have been met by her eviction. The petition was withdrawn after Miss Tara Gupta had surrendered one room to the petitioner. According to the Rent Controller the surrender of one room and the withdrawal of petition against Miss Tara Gupta showed that the need of the petitioner had been met by the room which was vacated by Miss Tara Gupta and if that was not so the eviction petition against her would not have been withdrawn. The Rent Controller ultimately came to the conclusion that though it was a choice of the landlady to seek the eviction of any of the tenants but such a choice should be genuine, honest and should not be malafide. Having come to the conclusion that the claim of the petitioner was not bonafide the Rent Controller dismissed the eviction petitions.

    6. Before me the first contention urged by the learned counsel for the petitioner was that the petitioner had not given up her ground under Section 14-A. Even if this be so, the petitioner cannot invoke the provisions of section 14-a. section 14-a can be invoked by those landlords to whom residential premises have been allotted by the government. In the present case residential premises were not alloted to the landlady. The allotment by the government was in favour of her husband and not in her favour. She obviously, therefore, cannot invoke provisions of section 14-a of the Act.

    7. It was next contended that the Rent Controller erred in coming to the conclusion that the claim of the petitioner for eviction was not bonafide. The petitioner is correct in contending that the premises which wee available at Darya Ganj could not be taken into consideration while deciding the need of the petitioner. It is true that the petitioner's husband had the vacant possession of the said premises. The Rent Controller has not found as a fact that the need of the petitioner and her entire family could be met by occupying the premises at Darya Ganj. It was wrong for the Rent Controller to suggest that these premises could meet the requirements of the married son of the petitioner. This seems to suggest that the petitioner should be compelled to disrupt the family. The petitioner has always lived along with the members of the family. She is entitled to say that this family should not be disrupted. The need under Section 14(1)(d) is to be seen of the family as one unit. It is now well established that it is for the landlord to select the premises where he wants to reside. Without doubt the whole family could not be accommodated in the house at Darya Ganj. As this is so the Rent Controller misdirected himself in taking the said premises into consideration for the purposes of adjudging the need of the landlady.

    8. The learned counsel for the petitioner has referred to a number of other infirmities in the order of the Rent Controller. The Rent Controller has not considered as to whether the need of the petitioner for additional accommodation in the house in question was genuine or not. In judging the need the Rent Controller ought not to have gone by the number of rooms which were in the occupation of the landlady. It is no doubt true that the number of rooms with the landlady were eight but the Rent Controller, however, observed that out of these eight rooms three rooms were being used for purposes of store and one room was being used as a bath room. The size of the remaining rooms is also not so big as to accommodate the members of her family comfortably. It has been held in Krishan Kumar v. Vimla Sehgal 1976 R.C.R 249, that no one can say that when the landlord requires one separate room for each member of his family such a requirement is unreasonable. It was further observed that the landlord could not be asked that he must somehow put up within the limited accommodation in his possession. In the present case the need of the family has not been adjudged by the Rent Controller after having hold that the family of the petitioner consists of seven adult members.

    9. It is contended by the learned counsel for the respondents that the finding of the Rent Controller are pure findings of fact and, while exercising revisional jurisdiction they should not be interfered with. The findings of fact arrived at by the Rent Controller are ordinarily not interfered with, but if it is found that there has been some material irregularity in the order of the Rent Controller then the court would be justified in interfering with such an order, In the present case, while deciding the eviction applications, the Rent Controller did not consider the status and background of the family, nor had he taken into consideration the need of the family, he also overlooked the health of the landlady which required additional accommodation only on the ground floor. The Rent Controller also did not take into consideration that the court has held in Krishan Kumar's case (supra) that the landlord was entitled to ask for one room for each child and in Shri Krishan Chand Chopra v. Shri Satya Paul Chaddha, 1974, R.C.R 578 it was held that the requirement of the landlord and his family of having a separate room for dining and sitting could not be termed as whimsical or fanciful.

    10. The mere fact that the petitioner withdrew her eviction petition against Miss Tara Gupta does not mean that her need was satisfied by Miss Tara Gupta surrendering one room. The petitioner's husband was examined in this case. No question was put to him as to why the petitioner had withdrawn cases against other tenants including Miss. Tara Gupta. Without this being put to him the Rent Controller cannot presume that the petitioner's demand for additional accommodation have been satisfied. It may be that the landlady agreed to withdraw the eviction petition on Miss Tara Gupta surrendering one room rather than to continue to fight litigation in a hope that ultimately orders of eviction would be passed a gainst Miss Tara Gupta in respect of the entire premises. Moreover, it was always open to the landlady to choose against which tenant to pioceed for eviction. It is possible that the petitioner did not consider the rooms in the occupation of Miss Tara Gupta as useful as the rooms in the occupation of other tenants against whom she proceeded. Merely, therefore, because the petitioner withdrew her eviction petition against Miss Tara Gupta the Rent Controller fell in error in concluding that the petitioner's need had been fulfilled and the present eviction petitions were not filed bona-fide.

    11. The learned counsel has also relied upon Nanalal Goverdhandas & Co. v. Smt. Samratbai Lilachand Shah A.I.R 1981 Bombay 1, and contended that the bonafide requirement was a state of mind and, therefore, must be deposed to by the person who is requiring the premises namely the landlord himself. In that case it was held that if the landlord does not step into the witness-box to bring before the Court legal evidence for proving his requirement, then it could not be said that he reasonably and bonafide requires the premises. It was further observed therein that the landlord could delegate the authority to someone else to conduct the case but he could not delgate the duty to depose. With due respect I am unable to agree with the aforesaid observations. To my mind the bonafide requirement cannot be regarded as a state of mind. Whether the premises are required bonafide or not cannot be wholly left to the subjective satisfaction of the landlord. It is to be seen objectively by the court on the evidence produced before it, as to whether the landlord bonafide requires the accommodation in the occupation of the tenants or not. There is nothing in the Rent Control Act which suggests that the landlord must step into the witness box. It is open to the landlord to lead any evidence which he chooses in order to substantiate his averments that he bonafide requires the premises for his own residence. A similar objection, of the landlord not appearing in the witness box was also taken before this court in Khurshid Haider v. Mst. Zubeda Begum, 15 (1979) DLT (SN) 233 but without success. In my view, therefore, if the admitted facts on the record show that the need of the landlady was bonafide then she would be entitled to order of eviction even if she has not appeared in the witness box.

    12. The next question which arises is as to what is the bonafide requirement of the petitioner and against whom, if at all, the order of eviction should be passed. According to the petitioner apart from one dining room and one drawing room the petitioner and her husband, her two daughters were entitled to one bed room each. This would be in addition to kitchen and a bath room. According to this calculation the petitioner wants five bed rooms in addition to dining room, drawing room, kitchen and bath room. Even if the two daughters can live together, both being unmarried, it will not be unreasonable for the landlady to ask for one bed room for herself, one for her daughters, one for married son and one for the unmarried son in addition to drawing room and a dining room. It is not disputed that at the present moment this extent of accommodation is not available with the petitioner. Out of the eight rooms in her possession one room is one room is being used as a bath room and as a kitchen. The area of one room which is being used as building store is 5’ × 8’. This obviously cannot be used for living. Another store room is of the size of 7’ × 8’. This again only can be used as a store and not for purposes of living. Then there is a large room of the size of 5’ × 9’ which is being used as a provision store. This could, possibly, be converted into a living room. If this be so the minimum additional requirement of the petitioner, to my mind, would be of two rooms. In the main building, out of the seven rooms, the petitioner is in occupation of five rooms, two rooms measuring 8 feet × 14 feet and 8 feetx 10 feet are in ihe occupation of Mr. Vinod Kumar Dubey. If the petitioner gets the possession of these two rooms, to my mind, her need for extra accommodation would be met. As it is, before the Rent Controller, the petitioner had offered not to press the eviction petition against Dig Vijay Pal Singh if her petitions against Babu Ram and Vinod Kumar Dubey were allowed. Taking into consideration the requirement of the petitioner, the rooms in the occupation of Vinod Kumar Dubey would be more suitable to her and with her getting the possession of these two rooms her requirement would be satisfied. This would mean that she would be entitled to an order of eviction against Vinod Kumar Dubey and her eviction petitions against Babu Ram and Dig Vijay Singh must fail.

    13. For the aforesaid reasons Civil Revision Nos. 81 and 82 are dismissed but Civil Revision No. 80 of 1980 is allowed and the order of the Rent Controller in so far as the petitioner's eviction petition against Vinod Kumar Dubey was dismissed is quashed. The orders of eviction are passed against Vinod Kumar Dubey. He is, however, given six months time with effect from today to vacate the premises. The parties to bear their own costs.

    14. Revision allowed.

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    Comments

    Uma Rani v. Vinod Kumar Dubey .
    (Nov 9, 1981)