Holding

The landlord's undertaking‑cum‑assurance is an integral part of the permission to sue for eviction and cannot be ignored; the Prescribed Authority must enforce those undertakings, and the High Court's order directing eviction was set aside.

Summary

The tenant Ramesh Chand sought to enforce the landlord's promise to provide a new shop at reasonable rent and alternative accommodation after demolition of the existing premises. The landlord had obtained permission to file an eviction suit under the 1947 U.P. Rent Act, giving an assurance-cum‑undertaking to the tenants. After the 1972 U.P. Urban Buildings (Regulation of Letting, Rent and Eviction) Act came into force, the landlord applied for eviction under section 43(2)(rr) of the 1972 Act, but the Prescribed Authority refused, holding the permission was conditional on compliance with the undertaking. The High Court directed eviction, ignoring the undertaking, and the landlord appealed. The Supreme Court held that the undertaking formed part of the basis for the permission and could not be evaded; the Prescribed Authority must enforce the landlord's obligations, and the High Court's order was set aside.

Issues considered

The Prescribed Authority under the U.P. Urban Buildings (Regulation of Letting, Rent and Eviction) Act, 1972, can it disregard the landlord's undertaking‑cum‑assurance given when permission to file an eviction suit was obtained under the 1947 Act?
Does section 43(2)(rr) of the 1972 Act obligate the authority to grant eviction irrespective of any conditions or undertakings attached to the earlier permission?
Is the landlord bound to provide alternative accommodation and a comparable shop at reasonable rent as per the undertaking, and can the tenant enforce those promises?
Was the Allahabad High Court in error in directing eviction without considering the landlord's undertakings?

Legislation cited

Uttar Pradesh (Temporary) Control of Rent and Eviction Act, 1947s. 21, s. 22, s. 2(d), s. 3(1)
Uttar Pradesh Urban Buildings (Regulation of Letting, Rent and Eviction) Act, 1972s. 43(2)(rr)

Subjects

landlord‑tenantevictionundertakingconditional permissionU.P. Rent Actsection 43rent controlurban buildings regulation

Judgment

A RAMESH CHAND
v.
PRESCRIBED AUTHORITY & ANR.

JULY 27, 1989

B IM.H. KANIA AND L.M. SHARMA, JJ.)
~
Uttar Pradesh Urban Buildings (Regulation of Letting Rent and
Eviction) Act, 1972-Section 43(2)-Landlord bound by undertakings-
cum-assurances given by him while seeking permission to file suit for
eviction of tenant.
~-
c In 1959 the landlord filed an application under section 3(1) of the
U. P. (Temporary) Control of Rent & Eviction Act, 1947 for the eviction --+
of the tenant from the shop on the ground that the landlord wanted to
demolish the shops in the ·building including the shop of the appellant/
tenant and in their place wanted to construct new shops and residential
D portion on the first Door. In the application the landlord gave an assur-
ance (undertaking) that be would give new shop to the tenant/appellant
after the new shops were constructed, at a reasonable rent. This appli-
cation was contested by the appellant/tenant alongwith other tenants.
The application was made to the District Magistrate u/s 2(d) of the U.P.
Rent Act, 1947. The Rent Controller and Eviction Officer who acted as
E District Magistrate under the said Act granted the permission and
rejected the contentions of the tenants. Against this decision all the
tenants filed revision petitions which were dismissed by the commis-
sioner Rohilkhand Division, Bareilly. The tenants preferred further - ~

revision to the State Govt. u/s 7-F of the said Act. In diSposing of the
revision petitions the Special Secretary noted that the landlord had
F given an undertaking to the tenants that they would be given newly
constructed shops on standard rent and that during the period taken for
.,
construction alternative accommodation would be given to them.
Thereafter the landlord f'Iled a suit on the basis of the. permission for
eviction of the tenants. During the pendency of the suit the U.P. Urban
Buildings (Regulation of Letting, Rent and Eviction) Act, 1972 came
G into force. The U.P. Rent Act of 1947 was repealed and some amend-
ments were made to section 43(2)(rr) in the U.P. Rent Act of 1972
whereby the landlords who had on the basis of permission granted to
them u/s 3(1) of the U.P. Rent Act of 1947 instituted suits for the
eviction of the tenants were given the right to apply for eviction of their
tenants straightaway if the permission wanted to them under section
H 3(1) of the U.P. Rent Act of 1947 bad been obtained on any grouiid
560
RAMESH CHAND v. PRESCRIBED AUTHORITY 561
·~
specif"ied in sub-section (I) or sulHectioll (2) of section 21 or the U.P. A
Rent Act of 1972. Taking advantage of these provisions, the landlord
filed an application for an order of eviction u/s 43(2)(rr) of the U.P. Rent
Act 1972. The Prescribed Authority dismissed the application of the
landlord on the ground that the permission obtained by him was condi-
tional permission and it would come into operation when the landlord
·-4 bad complied with the offer made by him and untill then be could not
B
claim eviction of the tenant u/s 43(2)(rr) of the U.P. Rent Act, 1972.
Against that order the landlord preferred a writ petition in the High
Court of Allahabad. The High Court took the view that the Prescribed
' -~ Authority was bound to allow the application of the landlord u/s 43(2)

. (rr) and order eviction. Against this judgment the tenant-appellant
came up by way of special leave. In setting aside the order of the High
Court, this Court in allowing the appeal,
c

HELD: One of the circumstances which constituted the basis for
the grant of the permission to file the suit for eviction was that the
landlord gave an assurance-c:um-undertaking to give the newly cons-
tructed sbops to the tenants sought to be evicted including the tenant in
D
the appeal and that the landlord also gave a similar assurance to give
alternative accommodation to the tenant during the period which would
be taken in completing the new Con.truction. Nothing is found lo the
J provisions of Se<:tion 43(2)(rr) of the U.P. Rent Act of 1972 which would
enable the landlord to evade bis duty to comply with the undertaking-
cum-assurances given by him. The undertaking-aun-assurances given E
by the landlord in the instant case certainly formed part of the basis on
~
which the permission to file suit for eviction was unconditionally given
to him. It .is but fair that the Court should see to it that the tenant is not
deprived of the benefit of the undertakings-cum-assurances. [566G, 567F]
~-
Asa Singh v. B.D. Sanwal & Ors., AIR 1969 AU. 474 and Bansila/ F
Sahu v. The Prescribed Authority & Anr., AIR 1980 All. 194, referred
to.

CIVIL APPELLATE JURISDICTION: Civil Appeal No. 2548
of 1983
G
'( From the Judgment and Order dated 15.9.82 of the Allahabad
High Court in Civil Misc. W.P. No. 14807 of 1981.

Pramod Swamp for the Appellant.

R.B. Mehrotra for the Respondents. H

;\.
562 SUPREME COURT REPORTS [1989) 3 S.C.R.

A The Judgment of the Court was delivered by

KANIA, J. This is an Appeal by Special Leave against a judg-
ment and order dated September 15, 1982 delivered by the Allahabad
High Court in Civil Miscellaneous Writ No. 14807 of 1981.

B The appellant before us is the tenant of the shop in question. ~..
Respondent No. 1 is a profQl'llla party, namely, the Prescribed
Authority, and respobdent No. 2 is the landlord of the building
containing the shop in question, situated at Mandi Harbansganj
:
Dhampur. We propose to refer to the appellant as the tenant and~
respondent No. 2 as the landlord. In 1959 the landlord filed an applica~-
C tion under section 3(1) of the U.P. (Temporary) Control of Rent and
Eviction Act, 1947 (hereinafter referred to as "the U .P. Rent Act of ·-.;
1947") for the eviction of the tenant from the said shop. The said
application was made on the ground that the landlord wanted to
demolish the shops in the building including the said shop and in their
place wanted to construct new shops and also to construct the residen-
D tial portion on the first floor. In the new building the accommodation
would be much larger and, apart from shops, even residential premises
would be constructed. In paragraph 7 of the application, the landlord
gave an "assurance (undertaking that the applicant will give the new
shop to the second party after the new shops are constructed on a 1
reasonable rent. " It is common ground that the applicant referred to
E was the landlord and the second party referred to was the tenant. This
application was contested by the tenant along with other tenants,
against whom also, the similar applications were filed. The application
was made to the District Magistrate within the meaning of the said
expression in sub-section (d) of section 2 of the U.P. Rent Act of 1947.
The Rent Controller and Eviction Officer who acted as District Magis- ~
F trate within the connotation of the said term under the said Act, about ·
which there is no dispute, granted the permission and rejected the
contentions of the tenant. Io the order granting the permission, which
order. is dated February 27, 1980, the Rent Controller and Eviction
Officer noted that the landlord was ready to give the newly cons-
tructed shops to the tenants on a reasonable rent. Taking into account
G all relevant facts and circumstances including the aforesaid fact of the
assurance-cum-undertaking given by the landlord, the permission to y
evict the tenant was granted. Against this decision all the tenants
including the tenant herein filed revision petitions which were dismis- .
sed by the Commissioner, Rukhilkand Division, Bareilly. The tenants
applied by way of further revision to theState Governor under Section
H 7-F of the said U.P. Rant Act of 1947. In disposing of the revision
(>(f .-

""( RAMESH CHAND v. PRESCRIBED AUTIIORITY (KANIA, J.) 563

petitions, the Special Secretary, who disposed of the same in the name A
""" of the Governor of the State of U .P., noted that the landlord had given
'""'\\ an undertaking to the tenants that they would be given newly con-
;" structed shops on standard rent and that during the period taken for
construction, alternative accommodation would also be given to them.
Thereafter, the landlord filed a suit on the basis of the aforesaid
-f permission for eviction of the tenant. During the pendency of the suit, B
the Uttar Pradesh Urban Buildings (Regulation of Letting, Rent and
Eviction) Act, 1972 (hereinafter referred Jo as 'the U.P. Rent Act of
1972") came into force. The U.P. Rent Act of 1947 was repealed by
- -.+ ·.
sub-section (1) of section 43 of the U.P. Rent Act of 1972 save and
except to the extent provided in the savings clause set out at sub-
section (2) of that section. Some amendments were made to section c
~ 43(2) (rr) in the U.P. Rent Act of 1972 by the U.P. Act ofXXXIll of
1976, whereby the landlords who had on the basis of the permissions
granted to them under section 3( 1) of the U .P. Rent Act of 1947
instituted suits for the eviction of their tenants were given the right to
apply for eviction of their tenants straightaway if the permission
granted to them under section 3( 1) of the U .P. Rent Act of 1947 had D
• been obtained on any ground specified in sub-section (1) or sub-
section (2) of section 21 of the U.P. Rent Act of 1972. Taking
advantage of these provisions, the landlord fileil an application for an
order of eviction against the tenant on the ground that the permission
had been obtained by the landlord on the ground specified in clause
(b) of section 21( 1) of the U .P. Rent Act of 1972 and hence, he was E
entitled to an order of eviction straightaway under section 43(2) (rr) of
~ the U .P. Rent Act of 1972. The Prescribed Authority dismissed the
application of the landlord on the ground that the permission obtained
by him was a conditional permission and it could not come into opera-

• tion unless the landlord had complied with the offer made by him
before the Rent Controller and Eviction Officer, namely, to make F
available to the tenant an alternative shop. It was held by die
Prescribed Authority that till that condition was satisfied by the land-
-i lord, he could not claim the eviction of the tenant under section 43(2)
(rr) of the U.P. Rent Act of 1972. Against this order, the landlord
preferred the aforesaid writ petition which was disposed of by the
-learned Single Judge of the High Court by the impugned judgment. G
The learned Judge took the view that the Prescribed Authority was
bound to allow the application of the landlord under section 43(2) (rr)
of the U .P. Rent Act of 1972 and order eviction. It was held by the
learned Judge that the ground on whicb permission was granted by the
Rent Controller and Eviction Authorities under the U .P. Rent Act of
1947 fell within clause (b) of sub-section (1) of section 21 of the U.P. H

~-·
!'I'
564 SUPREME COURT REPORTS I 1989] 3 S.C.R.
~
A Rent Act of 1972 and hence, the Prescribed Authority under the Act
of 1972 bad no jurisdiction to embark upon any fresh enquiry as to the
nature of the permission. It was held by the learned Judge that the
finding of the Rent Control authorities was that the building was in a
dilapidated condition and required demolition and hence, the Pres-
cribed Authority bad no jurisdiction to impose any condition before
B granting an eviction order. It was held by him that the Prescribed
Authority bad failed to exercise its statutory duty to order the eviction
of the tenant. The learned Single Judge directed the Prescribed
Authority to pass an order of eviction against the tenant. It is this
judgment of the learned Single Judge which is impugned before us by
Sbri Parmod Swaroop, learned counsel for the appellant. -~
c
"'f
Learned counsel for the appellant submitted that the decision of
the prescribed Authority to decliJ)e the prayer for eviction made by
respondent No. 2 was justified in view of the undertakings given by
respondent.No. 2 when the permission to file a sui(for eviction was
D given under the U.P. Rent Act of 1947 and the High Court was in error
in upsetting the decision of the Prescribed Authority. It was, on the •
other hand, contended by Mr .Mehrotra, learned counsel for respon-
dent No. 2 that in view of the provisions of section 43(2) (rr) of the
U .P. Rent Act of 1972, the Prescribed Authority had no jurisdiction to
go behind the permission and was bound to give an order for eviction
E unconditionally as held by the High Court in its impugned judgment.
Although the judgment of the Prescribed Authority, which was set
aside by the High Court, is not before us, it appears clear from the a
impugned judgment that the Prescribed Authority took the view that
the permission granted to respondent No. 2 to file the suit for eviction
was a conditional one and was operative only on the performance of
F the condition incorporated in the undertaking given by the landlord.

We are of th~ view that the entire argument before us proceeds
*
to a large extent on a misapprehension. However, before dealing with
the rival submissions, we propose to refer to the relevant provisions of
the aforestated two Acts very briefly.
G
U.P. Rent Act of 1947 was a temporary measure enacted with y
the object of continuing during a limited period the powers to control
the letting and the rent of residential and non-residential accommoda-
tion and to prevent the eviction of tenants from the same. The relevant
portion of sub-section (1) of section 3 of that Act runs as follows:
H
RAMESH CHAND v. PRESCRIBED AUTIIORITY [KANIA, J.J 565

"3. Restrictions on eviction. A
{1) Subject to any order passed under sub-section (3) no
suit shall, without the permission of the District Magis-
·~trate, be filed iri any civil. court against a tenant for his
, eyiction from any accommodation, except on one or more
of the following grounds:" B
.~
Thereafter, clauses (a) to (g) set out the grounds on which a suit for
eviction could be filed without the permission of the District Magis-
;. trate. Sub-sectfon (2) (If 5ection 3 provides for an application for revi-
~··.. --,.;... sion against the order'of.ihe,Distrlci Magistrate granting or refusing
a
·the grant oLpennissio~ to file' sllit'for eviction of a tenant to the C
Commissioner: Sub-section (4) provides that the order of the Commis-
sioner made in such revision application as set out above, shall be
subject to any order passed by the State Government under section 7F
of that Act. Sub-section (d) of section 2 of the U.P. Rent Act of 1947
gives an inclwive definition of the term "District Magistrate" and,
states that ibe said term' would include. an officer authorised by the D
, District Magistrate to' perform any of his functions ooder that Act. The
. U.P. Rent Act"of 1972 wasenacted to make proviSions in the interest
of the general public for ihe regulation of letting and rent of, and the ·.
eviction of ienanis from, certaill clas8es of buildings situated in the ·
urban areas. Section 21 of.·~~ Act proVides for release of a building
under occupation of the tenants, that is, very briefly, for the eviction E
of tenants from .the buildings ilndei' tenancy and also inter alia

-
-{
prescribes grounds on which such eviction can be 'ordered. It may be
mentioned that eviction 'of tenants is not permitted except on pres, ·
cribed grounds. Section 43 of the U.P. Rent Act of 1972 provides for
repeal and savings. Under sub-section (1) of that section the U.P.
Rent Act of. 1947 is repealed.' The relevant portion of sub-section (2) F
of section 43 Of the U.P. Rent.Act of 1972 which is in the nature of a
savings provisfon runs as follows:
"
"43 Repeal and savings.
'
(1) x x x x. G
••
(2) Notwithstanding such repeal
'
x x x x

(rr) where any permission referred to in section 3 of the H
566 SUPREME COURT REPORTS [1989] 3 S.C.R.

old Act has been obtained on any ground specified in sub-
A
section ( 1) or sub-section (2) of section 21, and has become
final, either before the commencement of this Act, or in
accordance with the provisions of this sub-section, after the
commencement of this Act, whether or not a suit for the
eviction of the tenant has been instituted, the landlord may
B apply to the prescribed authority for his eviction under
section 21, and thereupon tie prescribed authority shall
order the eviction of the tenant from the building under
tenancy, and it shall not be necessary for the prescribed
authority to satisfy itself afresh as to the existence of any
ground as aforesaid, and such order shall be final and shall
not be open to appeal under section 22".
c
The provisos to the clause are not relevant for our purpose.

The main contention of the learned counsel for respondent No. 2
before us was that in view of the provisions of clause• (rr) of sub-section
D (2) of section 43 of the U.P. Rent Act of 1972, once the permission to
file the suit for eviction was granted by the authorities concerned
under the U .P. Rent Act of 1947 and that permission was on a ground
specified in sub-section (1) or sub-section (2) of section 21 of the U.P.
Rent Act of 1972, it was not open to the Prescribed Authority before i_
which the application for eviction was filed to reconsider the same.
f--

-.
E The Prescribed Authority, in the present case, has tried to analyse that '
permission and declined to grant the decree for eviction on the basis
that the permission was conditional and the landlord was not willing to
'!.;
carry out those conditions. In our view, the question of the authority
under the U .P. Rent Act of 1947 having imposed any condition, does

F
not arise at all. A plain reading of the order of the Rent Controller and
Eviction Officer, Bijnor as well as the orders of the Commissioner in
revision and that of the State Government makes it clear that the
permission given to the landlord to file the suit was not subject to any
condition at all. At the same time, the judgment of the Rent Control-
'
ler clearly shows that one of the circumstances which constituted the

G
basis for the grant of the permission to file the suit for eviction was that
the landlord gave an assurance-cum-undertaking to give newly con-
structed shops to the tenants sought to be evicted including the tenant
.
before us and that the landlord also gave a 'similar assurance to give
alternative accommodation to the tenant during the period which
would be taken in completing the new construction. As we have
already pointed out, the petition for permission to file a suit, filed
before the Rent Controller by the landlord, in terms, contained an
H
RAMESH CHAND v. PRESCRIBED AU'Jl!ORITY !KANIA, J .] 567
oh ~
f assurance-cum-undertaking that the landlord would give the newly A
constructed shops after the new shops were constructed to the tenants
sought to be evicted on a reasonable rent. It appears that the offer to
I' provide for alternative accommodation during the period when the
,, new construction was coming up was made by the landlord in the
i:1 .-.f-. co~ of ~e he~g bethfore the said Eviction Offidcer, thBijnCoor. 'f!te B
revts1on petltion agamst at said order was dismisse by e mm1s-
sioner, Rukhilkhand Division, as we have already pointed out earlier.
The order passed under section 1F of the U.P. Rent Act of 1947 by the
State Government also dismissed the revision petition preferred by tl1e
:w:tenant to the State Government: The order of the State Government
"?Which was passed on behalf of the Governor of the State by the Special
Secretary, however, clearly notes that the landlord had given an c
~ undertaking to the tenants that they would be giving the newly con-
structed shops to them on standard and that during the periOd ta.ken up
in completing the new construction, alternative accommodation would
also be given to them. However, no condition in this connection was
imposed by the State Government on the permission to file the suit for
eviction. Under these circll!llstances, we propose to proceed on the D'
assumption that the High Court was justified in coming to the conclu-
sion that the Prescribed Authority under the U .P. Rent Act of 1972
had no jurisdiction to go behind the permission granted by the relevant
J authorities .under the U .P. Rent Act of 1947 for the filing of the
eviction suit. However, it appears to. us that the High Court was, with
respect, in error in not ta.king into account the undertakings-cum- .E

- assurance given by the landlord to the tenant in his application for
permission to file a suit as well as in the course of the hearing before
the aforementioned authorities. We do not find anything in the provi-
sions of section 43(2) (rr) of the U.P. Rent Act of 1972 which would
• enable the landlord to evade his duty to comply )Nith the underta.kings-
cum-assurances given by him. These undertakings-cum-assurances F
given by the· landlord certainly formed part of the'basis on which the
permission to file the suit for eviction was unconditionally giVCI! to
him. It is but fair that the court should see to it that the teriant is noi
deprived of the benefit of the undertakings-cum-assurances. In fact,
no good reason has been shown as to how the landlord canjustly claim
that he is no longer bound by the undertakings-cum-assurances given G
V by him as set out earlier. In these cirCu.mstances, we set aside the order
· of the High Court and pass the following order in its place:

( 1) We direct that the Prescribed Authority, Nagina, District
Bijnor, to pass an order of eviction against the appellant-tenant before
us but the' Prescribed Authority will give the necessary directions or H
568 SUPREME COURT REPORTS [ 1989] 3 S.C.R.

A orders to respondent No. 2-landlord to provide alternative accommo- ~ .(,
dation to the appellant during the period when the new construction is
coming up and also pass appropriate orders for ensuring that after the
new construction is completed, a comparable shop is given to the ,,I
appellant herein.

B (2) In order not to delay the construction of the new shops, the
Prescribed Authority may provide that, in case the landlord fails to or
+-
is unable to provide alternative accommodation to the appellant- r
tenant during the period when the new construction is being comp-
leted, he shall pay a certain sum as fixed by the Prescribed Authority
l
per month to the appellant-tenant which would be reasonably ade- ~
quate to enable that tenant to obtain alternative accommodation for
c that period. For the aforesaid purpose, the Prescribed Authority may ~
give such directions as it may think fit.

Before parting with the matter, we may refer to two decisions
which were cited before us. The first of these is the decision of a Full
D Bench of the Allahabad High Court in Asa Singh v. B.D. Sanwal &
Ors., AIR 1%9 All. 474. The Full Bench of that High Court inter alia
held in that case that while granting permission under section 3 of the
U. P. Rent Act of 1947 the District Magistrate was bound to consider
also the need of the tenant for the accommodation, if such a case is set l_
up by the tenant. This case was cited by the learned counsel for the
E tenant. Learned counsel for respondent No. 2, on the other hand, cited
the decision of another Full Bench of the Allahabad High Court in
Bansilal Sahu v. The Prescribed Authority & Anr., AIR 1980 All. 194 •
which, very briefly stated, laid down that the Prescribed Authority
under the U .P. Rent Act of 1972 is bound while acting under clause

F
(rr) of section 43(2) of the said Act, irrespective of the occurrence of
subsequent events, to order eviction according to the permission
granted by the Prescribed Authority under section 3 !'f the U .P. Rent
Act of 1947.
•
..

In our view, it is not necessary for us to enter into a discussion
of either of the authorities because they do not touch upon the question
G which has arisen before us, namely, enforcing the undertakings-cum-
assurances given by the landlord in obtaining the permission under ,,.
section 3 of the U .P. Rent Act of 1947. y
The Appeal ·is allowed to the extent aforestated. Looking to the
facts and circumstance; of the case, there will be no order as to costs.
H
R.N.J. Appeal allowed.