Can the Court Issue a Second Commission without Setting Aside the First Commission Report?

Answer: Yes.

Saji Koduvath, Advocate, Kottayam.

Part I

Apparent Legal Position

1. There is no bar to issuing a second commission if the court finds –

  • (i) the earlier Report was not satisfactory, and
  • (ii) there is a need for a further enquiry.

2. For issuing a second commission, the first commission report need not be set aside.

Because,

  • O26 r10(3) Code of Civil Procedure expressly allows the Court to direct such further inquiry as it thinks fit, if it is dissatisfied with the proceedings of the Commissioner, for any reason; and
  • Commission report is only a piece of evidence (A. Narayani v. Kittan, ILR 1997-1 Ker 726; 1996-2 KLJ 489; Subramonian v. K.S.E. Board, AIR 1988 Ker 169: 1987-1 KLT 355), and the court is not ‘bound by’ it.

Divergent Views Settled in Laly Joseph v. K.U. Francis

Laly Joseph @ Laly Sebastian v. K.U. Francis, 2023-3 KHC 678; 2023-2 KLT 516 (A. Muhamed Mustaque, Shoba Annamma Eapen, JJ.) has been rendered on a reference, as a Single Judge observed that a Division Bench, in Francis Assissi v. Sr. Breesiya, 2017-1 KLT 1041 (P.R. Ramachandra Menon, P. Somarajan, JJ.), held that a commission report could not be set aside [and that it can be set aside or varied only under Sub-Rule (2) of Rule 14 of Order XXVI of the CPC]. The reference was answered, finding that the observation in Francis Assissi’s case, on the point under consideration, was an obiter and was not a good law as it was rendered overlooking the statutory provisions. It is held in Laly Joseph v. K.U. Francis –

  • 1. “There is no embargo, according to us, for setting aside a commission report if the court is totally dissatisfied with the commission report.”
    • [contra to DB decision, Francis Assissi v. Sr. Breesiya, 2017-1 KLT 1041]
  • 2. “It is also open for the court to remit the commission report for further inquiry, so also to appoint a fresh commission without setting aside the earlier commission report.”
    • [contra to DB decision, Swami Premananda Bharathi v. Swami Yogananda Bharathi (K.K. Narendran, Paripoornan, JJ.), AIR 1985 Ker 83: 1985 KLT 144; and Yudathadevus  v. Joseph, 2021-5 KHC 668: 2021-6 KLT SN 36.]

Laly Joseph v. K.U. Francis is followed in Sreedevi v. State of Kerala, 2024 (2) KLT 645 (Anil K. Narendran, G. Girish, JJ.)

Sreedevi v. State of Kerala

In Sreedevi v. State of Kerala, 2024 (2) KLT 645 (DB), following Laly Joseph @ Laly Sebastian v. K. U. Francis, it is held as under:

  • “Of course, it is true that as per Order XXVI Rule 10(3) of the Code of Civil Procedure, 1908, the Tribunal is expected to remit back the commission report and order further enquiry, if only it is dissatisfied with the proceedings of the Commissioner. Howeverwhen a party requests for further enquiry on the basis of the new aspects brought out in the pleadings by way of amendment, and seeks to have a commission report on the matters related to such new aspects which are relevant for the just disposal of the case, the court is expected to allow such application even though the commission report which is already on record does not contain anything objectionable for the court to be dissatisfied.”

Two Divergent Observations, on Close Scrutiny of Law on ‘Binding Precedent’

1. In Shajitha v. Akbar, 2023-6 KHC 297: 2023-5 KLT 503 (Single Judge), it is observed –

  • A commission report cannot be set aside as (rightly) held in Francis Assissi v. Sr. Breesiya (DB). (But, without setting aside the first CR, a fresh commission can be appointed.)
  • The finding in Laly Joseph v. Francis (DB) — that there is no embargo for setting aside a CR — cannot claim the sanctity of binding precedent. Francis Assissi v. Sr. Breesiya (DB) forms the binding precedent.

2. In T. K. Vijayakumari v. Subhash Mohan, ILR 2024-4 Ker 411; 2024 KER 60761 (Single Judge), it is observed –

  • It is held in Swami Premananda Bharathi’s case – “The appointment of the second commissioner and the reports filed by him without setting aside the first commissioner’s report is wholly illegal and without jurisdiction”.
  • The ratio in Swami Premananda Bharathi’s case (supra) is the “binding precedent followed” in –
    • Yudathadevus’s case (SB),
    • Laly Joseph’s case (DB) and
    • Sreedevi’s case (DB).
  • And the following contra decisions “have no binding effect” –
    • Francis Assissi’s case (DB),
    • Gopalakrishnan v. V. Ponnappan [2021-5 KHC 548 : 2021-5 KLT 751] and
    • Shajitha v. Akbar [2023-6 KHC 297: 2023-5 KLT 503].

Conclusion

1. The issuance of a commission is, in most property-related civil disputes, almost inevitable. It is therefore important that the law on remitting commission reports, setting them aside, and calling for fresh reports is clearly settled and applied consistently.

2. The findings of the Division Bench in Laly Joseph v. K.U. Francis and Sreedevi v. State of Kerala are seemingly legally sound. Still, Shajitha v. Akbar (SB) and T.K. Vijayakumari v. Subhash Mohan (SB) do not accept the authoritative nature of these Division Bench decisions. Referring to certain earlier decisions, the single Judges say that those earlier decisions are the binding judgments. Therefore, in view of the observations in the above single bench decisions, an authoritative clarification is required, by an appropriate Bench, on the following (apparently ‘settled’) aspects:

  • (i) There is no embargo for setting aside a commission report .
  • (ii) It is open to the court to remit a commission report for further inquiry, as also to appoint a fresh commission without setting aside the earlier report.

Part III

Effect of Two Commission Reports in File

Assume, rightly or wrongly, two commission reports were brought to file; then, should the first report be discarded totally?

  • Since (i) the commission reports are pieces of evidence, (ii) it forms part of evidence and (iii) no express legal provision permits to discard such a report, it may not be proper to totally discard the first report.

Is it mandatory to set aside the Commission Report – where the report suffered only some “deficiency or omission”?

  • No.
  • It is to be remitted-back to the commissioner to cure the lacuna. Yudathadevus  v.  Joseph, 2021-5 KerHC 668; 2021-4 KerLJ 415; 2021-6 KerLT(SN) 42. Followed Joy Cherian v. George Cherian, 2009-3 KerLT 64.

Can the partiess be pushed to suffer for the Mistake of the Commissioner

In Yudathadevus  v.  Joseph, 2021-5 KerHC 668; 2021-4 KerLJ 415; 2021-6 KerLT(SN) 42, it is held as under:

  • “21. In a case where the court finds that the commission report is totally unacceptable as it is not in accordance with the true state of affairs, it can always attempt to get at the truth by deputing another commissioner and its power to act under sub rule (3) cannot be minimised or overlooked on the ground that the contesting party has not filed any objection to it. It is always the endeavour of the court to arrive at the correct decision in a given case and whenever it is found that the commission report is unacceptable for any valid reason it can legitimately exercise its power under sub rule (3). It is well within the competence of the appellate court also to exercise in appropriate cases power under Order 26 Rule 10(3) to set aside the commission report and call for fresh report by deputing another commissioner.”

It is beyond doubt that above observation is made on the principle that the parties should not be pushed to suffer for the lapse or mistake of the commissioner. We can take cue from the proposition that ‘a party should not be pushed to suffer a wrong occasioned by the inaction or fault on the part of the Court’. See :

  • (i) Jang Sing v. Brij Lal, AIR 1966 SC 1631;
  • (ii) A.R. Antulay v. R.S. Naik, 1988-2 SCC 602;
  • (iii) Mudit Verma v. Co-operative Tribunal, 2006 (63) ALR 208 (All)(LB)

When a commission report is set aside, is the court bound to remit it back to the Commissioner for getting a fresh report?

  • Yes.
  • Yudathadevus  v.  Joseph, 2021-5 KerHC 668; 2021-4 KerLJ 415; 2021-6 KerLT(SN) 42. The reason behind it is obvious –
  • Court can appoint a commissioner suo motu (Dinesh Chandra Gaur v. Abhay Sood, 2015 (2) ARC 243).
  • In Retnamma v. Mehaboob, 2013-3 Civil CC 65 it is held that the court should go through the report and see whether it was in Order, irrespective of whether any objection is filed or not; and that the Order 26 Rule 10(3) C.P.C. laid down that where the Court was dissatisfied with the proceedings of the Commissioner, for any reason, it might direct the commissioner to make such further inquiry as it thought fit.

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