Holding

Section 13A(1) confers the right to recover possession only on those who were landlords while in service; a retired officer acquiring title thereafter cannot invoke the provision.

Summary

The plaintiff, a retired Indian Army officer, acquired a portion of a property by gift after his retirement and sought to evict a tenant under section 13A(1) of the Bombay Rents, Hotel and Lodging House Rates Control Act, 1947, producing a certificate from the Army. The trial court granted the eviction, but the High Court set aside the decree, holding that the plaintiff was not entitled to invoke the provision because he became landlord only after retirement and had not shown a bona‑fide need for the premises. The Supreme Court examined the object and language of section 13A(1), concluding that the benefit is confined to persons who were landlords while in service and that allowing post‑retirement acquisitions would defeat the provision’s purpose and invite an Art. 14 challenge. Consequently, the Court affirmed that the plaintiff could not rely on the section and that his claim of necessity was unsubstantiated. The appeal was dismissed, leaving the tenant in possession.

Issues considered

Whether a retired member of the armed forces who acquires title to premises after retirement can invoke section 13A(1) of the Bombay Rents, Hotel and Lodging House Rates Control Act, 1947 for eviction.
Whether the plaintiff satisfied the "bona‑fide requirement" under clause (a) of section 13A(1).

Legislation cited

Bombay Rents, Hotel and Lodging House Rates Control Act, 1947s. 13A(1)
Delhi Rent Control Act, 1958s. 14A(1)
West Bengal Premises Tenancy Act, 1956s. 29B

Subjects

Section 13A(1)Bombay Rent Control Actevictionex‑servicemenlandlordbona‑fide requirementArticle 14tenancy

Judgment

..
1005

MRS. WINIFRED ROSS & ANR.
A
v.

MRS. IVY FONSECA & ORS. .. .
December 7, 1983 n
' [E. S. VENKATARAMIAH AND R. B. MISRA, JJ.]

Bombay Rents, Hotel and Lodging House Rates Control. Act, 1947-
S. 13Al--Whether On ex-_member of armed.forces who acquires title to prope.rty
aft'er hi$ retiren1en1 is enfitled to recover possession. fron1 tenant under C
s.13Al? . .

The plaint_iff who was a inember of the armed forces of ·the UnioQ -had -
retired from service in 1967. The· suit property ·was a part ·of the property
gifted by. his mother-in-18.w to his wife ·in 1976, which ill tu·r·n had been· gifted
in his favour in 1977, probably with the object of ta~ing advantage. of s. 13Al
of the Bombay Rents, Hotel and Lodging House R'ates ·Control Act, 1947 D
which had been introduced iii the Act by way of an amendment made: in· 1975.
The p18inti'ff filed the· suit under s.13A1 for recovery of possession or' the suit
property.from the defend1;1nt who had been occupying the same· for a number
of years and in the course of the suif produced a certificate issued by the Army
•
Officer concerned as required by that ~cction The suit wa·s .decreid by the
trial court and the defendant's appeal against the same was turned down by·
the District. Judge whereup0n the· defendant filed· a petition under Arts. 226 E
and 227 of the.Constitution which was allowed. The High Court dismissed
the suit for eviction holding that the plaintiff was not entitled to. file the suit·
under ·s.13Al as he had acquired the premises Jong after he· had retired from
service and that bis requirement was not bona fide even for purposes· of grant~
ing relief under s.· 13(1) (g).

Dismissing the 3.ppeal,

HELD : Section 13Al of·the Bombay Rents, Hotel and Lodging House
~ates Contror Act, 1947 has been introduc~d i~ the Act to. ena~le members of
the armed forces who ha~e leased out their buildings when they are in service
to recover quickly possession of such buildings without the restrictions contai-
ned in the. othef parts Of the Act, either when they are still i.n service, or .on G
their retirement, for their use and occUpation or for the use and occupation of '
the members of thefr family. An an8.Jysis of cJ. (a) of s.13Al shows that the
person who wishes to claim the benefit of that section sbOuld be a landlord Or
the premises While he is a member of the armed follCes of the Union and ihat
he may recover possession of the premises on the ground that the premises are
bona fide required by him for occupation by himself or any member of his H
·family on the Production of the.required certificate either while he is still in"'
service or after his retirement." The essential, requirement is that he should
have teased out the building while he was a member of the armed forces. His
1006 SUPREME COURT REPORTS (1984] I s.c.R.

widow can also recover the premises of which she is or has become· the Jarid·
A lord. under cl. (b) subject to fulfilment of tbc cor:ditions. Having regard to
the object and purposes _of the Act and in particular of s.13Al it is difficult to
hold that s.13A l can .be availed of by an ex-member of the armed forces to
recover from a tenant possession of a· ~uilding which.he acquires afler his
retirement. [JOJIB-D'j

A liberal construction of s.13~1 would epable unscrtlpulOus ·landlords
B who cannot get rid of tenants to transfer tl1cir pre1nises to ex-military men, as
it has been done in this case, in order to avil of the benefit of the provision
. With a private arrangement between them. Since such an inte'rpretation is
Jike~y to expose the provision to a successful Challenge under. Art. 14 of the
Constitution it has to be read down as conferring benefit only on those
members of the.armed fo~ces who were landlords of the premises in ·question
c while they ·were in service even though they n1ay avail of it 3.fter their
retirement. . [l012B; 10140-H]

{The .Court refrained from expressing any op1n1on on the question
whether a member or ·a retired member of the armed forces who acquires
title to a building which is already in the occupation of a tenant by i"nheritancC,
partition, transfer or otherwise and thus becomes the landlord of the building
D while he is a metnber of the armed forCes, can avail of. the rcn1edy ar.ainst such
tenant under s. 13ALJ [1015C-DJ .

Sushi/a Bai Vasudev Jaee/ v. M. S. Dhillon [l979J Maharashtra Law
Journal 125; and Jyotish Ranjan Chakrabart{v. N. K. Mitra, [1983] I R.C.J. 223
approved.
E ..
Nihal Chand v. Kalyan Chand, (1978] 2 S.C.R. 183; B. N. M111to & Anr. v.
T. K: Nandi [1979] 2 S.C.R. 409 distinguished .. ·

In the instant case, the plaintiff was not entitled to succeed even on the
basis of s. 13(1) (gl of the Act. The High Court -was right in arriving at the
finding that the plaintiff had not established that he was really in need of the
F building. · [1015 DJ
l
CIVIL APPELLATE JURISDICTION Civil Appeal No. 1796 of
1982.

From· the Judgment and Order dated 24th April, 1981 of the
G
·High Court of Bombay in Special .Civil Application ,No. 3025 of
1978.

G.L. Sanghi, C.N. Murty and R. Vasudevan for the Appellants.
H
T.S. Krishnamoorthy Iyer and R. Nagaratnam for the Re~pon '
dent No. 1- ·
(, ... ...
. '
•
WINIFRED ROSS v. !VY FONSECA (Venkataram_iah, !-> ,JG07
. .
,.
The"Judgment of the Court w_as delivered by
~·
. . A
Vrn¥TARAMIAH; J. The principal question for consideration in
this appeal by special leave is whether a person who was. formerly ·a .
member of the armed· forces can· recoyei possession of a building
which "was acquired by bini after he had retired from the armed forces
underseC:tion 13 A-1 oftheBombayRents;HotelandLodgingHouse_' ··, B·
Rates Control Act, 1947 (Act No. 57 of 1947) (hereinafter referred 'to .•
as 'the Act') for occupatiOn ·, by himself or any .member · of his . · .
• fainily . . , · - •

The plaintiff Lt Col. :r.E. Ross was formerly serving as a
member of the Indian Army and he retired from the military service
in the year 1967•. The property of which the suit cbuilding forms a
part ·originally belonged io his mother-in-law, Mrs. · Arcene Parera. ·
. She ·gifted the said property in favour of her daughter, Mrs .. Winifred
Ross, the wife of the plaintiff on November 9, 1976. ·• The property
.consisied of some out-houses.: The defendant rulS been 1(. tenant in.
a
one Of those out-houses for number of years. The said premises
. ·consisted oftw,; rooms and· a varandah. ·On June. 6, 1977, Mrs.
Winifred Ross gifted the portion tri which .the defendant was residing
as a tenant in favour of the plaintiff. The'reril.ainillg.part'of. the
property acquired under the gift deed executed.by. t~e mother-in-law·
• of the plaintiff continued in the occupation. of Mrs. Winifred Ross ... ·
E
The. gift of only the portion of the pr_operty in'the occupation. of the.
defendant appears to have been made with the object. of taking
· advantage of section· 13 A I of the. Act which was introduced by way
·of an amendment of the Act in 1975. Section 13 Al of the Act reads
thus:

· '.'l3Al. Notwithsta~ding anything contained in .this
·Act (a) a landlord: who is a member of. the ·armed forces ·
of the Union,.or who was such member and is. duly reti· ·
· ·red (which term shall include·premature retirement) shall· G
be entitled to recover possession 'of any premises, on .the,
.• . ground that the premises are bona fide . required by. him .
for occupation by himself or any member of his family '
(which term shall include a parent or other- relation ordi-
.. H •
. ,. narily residing with him and dependent on him); and the
Court shall pa~s a decree for eviction on such ·ground if
a: .
.·the landlord, at the headng of the suit, produces . certi·

'
1008 SUPREME COURT REPORTS (1984] I s.c.R.

ficate signed by the Head of his Service or bis Command·
A ing Officer to the effect- that-
'
(i) · he is presently a membet of the armed forces of
the Union or he was such member and .is now a
retired ex-serviceman;
B
(ii) he does not possess any other suitable residence
in the local area where he or the members of his
family can reside;,

c (b) where a member of the armed forces of the
Union dies while in service or .such member is duly retired
as stated above and dies within• five years of his retire·
'.. ment, his widow, who is or becomes a landlord of any
premises, shall be entitled to recover possession of such
premises, on the ground that the premise~ are bona fide
D required by her for occupation by herself or 'any member
of her family (which term shall include her or her hus·
band's parent or other relation ordinarily residing with
her); and the Court shall pass a decree for eviction on
such ground, if such.widow, at the hearing of the suit,
produces a certificate signed by the Area or Sub-Area
E
Commander within whose jurisdiction the premises are
situated to the effect that-

(i) she is a widow , of a deceased member of the
armed forces as aforesaid;
F ,.
(ii) she does not possess any other suitable residence
in the local area where she or the members of
her family can reside. ,

G Explanation 1.- For the purposes of clause (a) of
this seetion, the expsession "the Head of this Service", in
the case of officers retired from the Indian Anny includes
the area Commander, _in the case of officers retired from
the Indian Navy includes the Flag Officer Commanding-
H in-Chief, Western Naval Command, and in the case of
officers retired from the Indian Air Force includes the
Station Commander.
•
WINIFRED ROSS v. IVY FONSECA (Venkataramiah. J.) 1009

Explanation 2. - For the purposes of this section,
any certificate granted thereunder shall be conclusive A
evidence of the facts stated therein."

Immediately after the zjft deed was executed in bis favour, the
plaintiff issued a notice to the defendant on June 14, 1977 terminat-
ing the tenancy and asking the defe~dant to vacate the premises at B
the end of July, 1977. Then he filed the Civil Suit No. 2131 of 1977
on the file of the Second Additional Judge, Small Cause Court, Pune
for recovery of possession of the premises under section I 3AI of the
Act. He also produced in the course of the suit a certificate issued

-· by the Army Officer concerned as required by that section. The
plaintiff claimed that he required the premises for his own use and
•occupation to stay alongwith bis wife and that he had no premises of
c
his own in Pune for his residence. The defendant contested the suit.
But the suit was decreed by the trial court on March 18, 1978 and
the defo1dant was directed to deliver possession of the premises with-
in one month from the date ofsigining the decree. The defendant D
filed an appeal against that decree before the District Judge, Pune in
Civil Appeal No. 228 of 1978. That appeal was dismissed on
November 15, 1978. Against the decree passed in the appeal the
defendant filed a petition under Articles 226 and 227 of the Constitu-.
tion before the High Court of Bombay in Special Civil Application
No. 3025 of 1978. During the. pendency of the said petition the E
plaintiff died and his legal representatives were brought on record.
The High Court allowed thesaid petition and dismissed the suit for
eviction. The High Court held that. the plaintiff was not entitled to
file the suit under section I 3A I of the Act as he had acquired the.
premises long after he had retired from the service of the army and
that his requirement also was not bona fide even for purposes of F
granting relief under section 13(1) (g). This appeal by special leave is
filed by the legal representatives of the plaintiff against the ju'dgment
· 2f the High Court.

The first question which arises for consideration is whether the G
plaintiff who had acquired title to the premises in question and
became its landlord after he had retired from the service of the Army
could maintain the petition under section 13A I. The object of
introducing the said section into the Act is contained in the State-
ment of Objects and Reasons annexed to the amending Bill which
later on was passed by the State Legislature. ·It reads :
•
1010 SUPRBME COURT RBPOR.TS [1984) 1 S.C.R,.

"Defence Services Personnel are liable Jo transfers
A and to be stationed in different parts of the country. They
are often posted at non-family stations. Some of these
.Personnel, who possess their own premises either in their
home towns or elsewhere have necessarily to hire them
out to other persons temporarily while they are away on
B duty. It has been represen1':d to the State Government
by the military authorities that on their retirement or
transfer to non-family stations the serving and ex-service
personnel find it extremely difficult to regain possession of
their .premises which they badly require for personal

c
occupation permanently or for housing their families for
the duration of· their posting at non-family stations.
In case of death of a service personnel while in service or
--
death of ex-service personnel shortly after the retirem.ent,
the widow also finds it extremely difficult to regain
possession of their premises for her personal occupation
D or occupation of her family.

2: The cases of Defence Services Personnel due to their
special obligations and. disabilities do need, different
treatment from that accorded to other landlords and
E in fact special provisions have been .made for them
in some of the States, whereby processes for each
personnel to regain possession of their premises have
been simplified and made more effective.

F 3. It is considered necessary to make a special provJS1on
in the Bombay Rents, Hotel and Lodging House
Rates Control Act, 1947 to enable a member or
retired member of the armed . forces of the Union
or a widow of such a member who dies while in
G service, or who dies within five years of his ·retire-
ment, to- regain possession of their premises, when
bona fide required for occupation by them or mem-
bers of their families and to provide that the Court
shall be bound to pass a decree for eviction on such
H ground if such member or widow, as landlord,
produces, at the hearing of the suit, the necessary
certificate signed by the Head of his Service or His
Commanding Officer or the Area or Sub-Area
wtNIFRED Ross v. 1vy FONSECA ( Venkaiara'miaii, J.) ioi i
..
Commander within whose jµrisdiction the premises
are situated. A

The Bill is intended to achieve these objects."

The object of section 13Al of the Act is quite a laudable one,
It is jntroduced in order to enable members of the armed forces who
have leased out their buildings when they are in service to recover B
quickly possession of .such buildings without the restrictions contained
in the· other parts of the Act either when they· are still in service or
on their retirement for their use and occupation or for the use and
. - occupation of the members of their family. Even the widows of such .
)(
landlords may under clause (b) of section l 3Al can recover posses- c
sion of such buildings if they satisfied the conditions mentioned
therein .. An analysis of ciause (a) of section J3Al shows that the
person who wishes to claim the benefit of that section should be a
landlord of the premises while he is a. member of the armed forces
of the Union and that he may recover possession of the premises on
the ground that the premises arc bona ftde required by him for D
occupation by himself or any member of his family on the production
of the required certificate either while he is still in service or after
his retirement. The essential requirement is that he should have
leased out the building while he was a member of the armed forces.
His widow can also recover the premises of which she is or has E
become the landlord under clause (b) subject to fulfilment of the
conditions. Having regard to the object and purposes of the Act

'
and in particular section 13Al it is difficult to bold that section
J3Al can be availed of by an ex-member of the armed forces to
recover from a tenant possession of a •building which he acqnires
after his retirement. Acceptance of this argument will expose the F
very section l 3Al of the Act to a successful challenge on the ground
of violation of Article 14 of the Constitution for if that were so, a
retired military officer who has no house of his own can purchase
any building in the occupation of a tenant after his retirment,
successfully evict a tenant living in it on the ground that he needs it G
·for bis use, then sell it for a fancy price and again because he has no
house of bis own, he can again acquire another building and deal
with it in the same way. There appears to be no restriction on the
number of times be can do so. It was argued that he would not b.e
able to get the requisite certificate under the Act more than once. A H
reading of section 13Al of the Act shows that the certificate should
show that the person concerned bas been a member of the arme\\
SiJPbMll COURt REPORTS (1984) 1 S.C.R

. forces and that he does not possess any other· suitable residence in
A the local area where he or members of his family can reside. Those
conditions being satisfied the certificate cannot be refused. A. liberal
construction of section l 3A I of the Act as it is being pressed upon
us would also enable unscrupulous landlords who cannot get rid of
tenants to tr~nsfer their premises to ex-military men, as it has been
B done in this case in order to avail of the benefit of the. said section
with aJ>rivate arrangement between them. It is also possible that a
person who has retired from the armed forces may ·after retirement
lease out a premises .belonging to him in favour of a tenant and then
seek his eviction at his will under section l 3Al of the Act. In fact
the facts involved in the case of Sushilabai Vasudeo Jaee/ & Ors. v.
c M. S. Dhillon & Ors.( 1) were similar to the above illustration. In·
that case the plaintiff was a person who had been discharged from )(
·the army in the year 1946. Thereafter he was working in the
Railways. He had let out a premises belonging to him in 1957. The
High Court Of Bombay held that he could not avail himself of the
benefit of section 13Al of the Act as he had not let out the building
D
while he was in the army. The High Court found that section l3A 1
. of the Act did not govern the case· of a person who had retired l~ng
back from the armed forces and was gainfully employed elsewhere
and while so employed had let out his premises with open eyes. We
fully endorse this view.
E
In another case Jyotish Ranjan Chakrabarti v. N.K. Mitra(')
decided by the Calcutta High Court a provision similar to section '
13Al of the Act came up for consideratio~. That provision was

F
section 29B of the West Bengal Premises Tenancy Act, 1956, the
material part of which read as follows :

"29B. (I) No Civil Court shall entertain any applica•
tion ........................... - ..... · by a landlord who is
'
retired member of the naval, military or air force of the
G Union of India or will retire within a period of Jess than
one year as such member, for the recovery of possession
of any premises on the ground specified in. clause (ff) of
sub-section (1) of section 13 but such application shall· be

H
(IJ [1979] Mahatashtfa taw JoUrnal12§
(2) [1983] I R.C.J. 223
\v!'.NIFRED ROSS v. iyy FONSBCA (Venkataramiah, J.) 1013

J .dealt with by the Controller in accordance with the pro•
.r cedure specified in this section . ·A
... ... ... - ... ............ ......... ·• ....... -·
~- .-... "
The above provision conferred a right to recover possession
of premises from a tenant on a retired member of the armed forces B
or a member retiring within a period of less tha!1 one year · from the
. armed forces who is a landlord and is in. need of the premises at or·
about the time of retirement by resorting to a summary remedy.
There the landlord had retired from the armed forces in 1970 but be
had acquired title to the promises in question in 1979. The High
Court of Calcutta held that he was not entitled to claim the benefit c
of section 29B of the West Bengal Premises Tenancy Act, 1956 on
the ground that the provision applied only to those persons who
were landlords at the time of their retirement.

·The .appellants cannot derive any support from the deci~ion of D
this Court in Nihal Chand v. Ka/yan Chand Jain(!)· In that. case
section 14A(l) of the Delhi Rent Control Act, 1958 arose for consi-
•. deration. That section provides that where a landlord who being a
person in occupation of any residential premises allotted to him . by.
the Central Government is required to vacate such residential
accommodation or in default to incur certain obligations on the E
ground that he owns in the Union Territory of Delhi a residential
accommodation either in his own name or in the . name of his wife
or dependent child there shall accrue on and from the date of' such·
order to such landlord notwithstanding anything contained in the
.. Delhi Rent Control Act, 1958 a right to recover immediate posses- F
·sion of any premises let out hihim. ·The landlord in that case who
was a Central Government servant had been allotted a residential
premises by the Central Government. In accordance with a general
order issued pursuant to the Central Government's decision dated
September 9, 1975, a notice was served on the landlord on Septem·
ber 30, 1975 which was much before his retirement which took place G
on November 30, 1975 to vacate the premises allotted to him by the
Government as he had his own accommodation in Delhi which he
had leased out and that if he did not do so he had to· pay penal rent
for the Government premises. When he filed a suit for eviction
under section 14A(l) of the Delhi Rent Control Act, 1958 he had H

(I) (1978] 2 S.C.R. 18!
1014 SUPREME COURt REPORTS (1984] I s.c.a·

A . ceased to be a Government servant by reason of his retirement. The
tenant contended that he could not avail himself of the benefit of
section 14A(I) as he had ceased to be a Government servant. This
Court negatived the said plea holding that the cause of action arose
on September 30, 1975 when he was served with the notice by the
Government and on that date lie was very much in service even
though the Court observed that there was some force in the argu-
B
ment that section 14A(I) of the Delhi Rent Control Act, 1958 was
intended for the benefit of persons who were in Government
service.

The judgment of this Court in B.N. Mutto & Anr. v. T.K.
c Nandi(') which again arose m:ider section 14A of the Delhi Rent
·Control Act, 1958 .was also relied on by the appellants in support ~f
the argument that as the expression 'landlord' us~d in section !3Al
of the Act was capable of being construed as including within .its
scope even.ex-military men who may have become landlords after
D their retirement, the limited meaning given to it in the Statement of
Objects and Reasons should not be given to it and that section 13A I
shonld, therefore, be interpreted without reference to the Statement
of Objects and Reasons. In the above decision; this Court held that •
while ·the original object of enacting section 14A of the Delhi Rent
Control Act, 1958 was to confer benefit on Government servants
E only, later on it was thought fit to confer a similar benefit also on
others who were in possession of Government buildings and who
.were Jieing asked ~o v~cate the~ on the. ground that. they ha~ their
own accommodation m the Umon Territory of Delhi. In the· mstant
case there is no ground to presume that section l 3Al of the Act was
F a
intended to confer benefit on' class of persons wider than the class
referred to in the Statemen( of Objects and ·Reasons, that is,. on all
retired members of the armed forces irrespective of the fact wh.ether
they were landlords while they were in service or not. There is no
valid justification to give such a wide niea~ing to the section.

G
Since a liberal interpretation or section 13Al of the Act is
likely to expose it to a successful challenge on the basis of Article 14
of the Constitution, it has to be read down as conferring benefit only
on those members of the armed forces who were landlords of the
H premises in question while they were in service even though they may

(I) [1979) 2 S.C.R. 409
WINIFRED ROSS v. IVY FONSKA (Venkataramiah, J.) 1015

avail of it after their retirement. Such a construction would save it
from the criticism that it is discriminatory and also would advance A
the object of enacting it, namely, that members of the armed forces
should not while they are in service feel worried about the difficulties
of a long drawn out litigation when they wish to get back the pre~
mises which they have leased out during their service. Persons in
the position of the landlord in the present case cannot, therefore,
B
maintain a suit under section 13Al of the Act. The High Court was,
. therefore, right in rejecting the ~bove contention.

•· We, however, wish to clarify that in this case we express no
opinion on the question whether a member or a retired member of
the armed forces who acquires title to fl building which is already in c
the.occupation of a tenant by inheritance, partition, transfer or
otherwise and thus becomes the landlord of the building while he is
a member of the armed forces, can avail of the remedy against such
tenant under section 13A I of the Act.
D
Even on the basis of section 13(1 }(g) of the Act, the plaintiff is
+ not entitled to succeed in view of the· clear· finding recorded by the
High Court. We have gone.through the reasons given by the High
Court to reverse the decision of the District Court on the above
question. We agree tharthe plaintiff has not established that he was
really in need of the building. The finding of the High Court on this E
question .also does not call for any ·interference.

<
,.' For the foregoing reasons, the appeal fails and is hereby dis-
missed. No costs.
F
H.L.C. Appeal dismissed.

•