Does Abandonment or Acquiescence Give rise to a Vested Right, in Indian Law?

Yes; Abandonment/Acquiescence by One may Confer Legal Rights on Another. Release, Relinquishment, Rescission, Waiver, Abandonment, Forfeiture, Ouster, Adverse Possession, Acquiescence, Latches are legally recognised rights in Contract, Easements and Property law.

Jojy George Koduvath.

Introduction

Property, as a legal concept, is the sum of a bundle of rights.

  • In the case of tangible property, it includes the following rights:
    • the right of possession,
    • the right to enjoy,
    • the right to destroy,
    • the right to retain,
    • the right to alienate
  • and so on (Guru Datta Sharma v. State of Bihar, AIR 1961 SC 1684).

Therefrom, it is clear that the owner of a ‘property’ has the liberty to ‘abandon’ it.

We need not probe deep to find out the genesis of this right

Under law, the ‘right to abandon’ is wielded in properties which are capable of transfer from one to another. Rights in contractual matters can also be abandoned. This privilege is one exercised unilaterally; and it is ancillary and incidental in the right of ownership. (This right being inherent and sui generis we need not probe deep to find out the genesis of this right.)

One cannot abandon the obligation arsing from a contract

Though a party to a contract may also relinquish his rights, he cannot abandon the obligation arsing from the same. Therefore:

  • Abandonment is
    • the voluntary act done by the owner of a property
    • whereby he permanently renunciates the right, title and interest
    • in a specific transferable property,
    • not amounting to a transfer (to a transferee); or
  • the willful relinquishment of the beneficial rights in a contract, by a party to the same.

No Obligation can be Abandoned

In Shripati Lakhu Mane v. Maharashtra Water Supply And Sewerage Board, 2022 SCC OnLine SC 383, it is held as under:

  • “Moreover, abandonment is normally understood, in the context of a right and not in the context of a liability or obligation. A party to a contract may abandon his rights under the contract leading to a plea of waiver by the other party, but there is no question of abandoning an obligation. In this case, the appellant refused to perform his obligations under the work-order, for reasons stated by him. This refusal to perform the obligations, can perhaps be termed as breach of contract and not abandonment.”

Abandonment is the voluntary giving up of one’s rights

In Sha Mulchand and Co., Ltd. v. Jawahar Mills Ltd., Salem, AIR 1953 SC 98 (SR Das, MC Mahajan, Vivian Bose, Ghulam Hasan), ‘Abandonment‘ was explained by Vivian Bose J., who delivered a separate Judgment, as under:

  • ‘Abandonment is the voluntary giving up of one’s rights and privileges or interest in property with the intention of never claiming them again’. 

‘The Free Dictionary: Dictionary, Encyclopedia and Thesaurus’ describes ‘abandonment’ as under:

  • “Voluntary relinquishment of all right, title, claim, and possession, with the intention of not reclaiming it; the giving up of a thing absolutely, without reference to any particular person or purpose.”

In Kanhiya Shanker v. Mohabata Sedhu, AIR 1960 P&H 494, it is held as under:

  • “Abandonment means the Act of intentionally relinquishing a known right absolutely and unconditionally and without reference to any particular person or persons.”

Once an Abonnement Always an Abonnement

Abandonment of a right in a transferable property or a contract will result in vesting a corresponding entitlement in another. An abandonment, as the word connotes, made once, stands permeant and irrevocable; or in other words, once an abonnement always an abonnement.

If Abandonment Proved, Subsequent Claims Futile

Once an abonnement being always an abonnement, if an abandonment is proved, subsequent claims by the same person or his successors will not be accepted in law.

Voluntary Abandonment of Known and Existing Right alone is Recognised in Law

If only the abandonment of a transferable property is the result of an intentional or voluntary act, then only it will be recognised in law as an act capable of losing right in one and creating in another. It must be a known and existing legal right. (See: Basheshar Nath v. Commissioner of Income-tax, Delhi and Rajasthan, AIR 1959 SC 149.)

In Municipal Corporation of Greater Bombay v. Dr. Hakimwadi Tenants’ Association, 1988 Supp. SCC 55, it was held as under:

  • “In order to constitute waiver, there must be voluntary and intentional relinquishment of a right. The essence of a waiver is an estoppel and where there is no estoppel, there is no waiver. Estoppel and waiver are questions of conduct and must necessarily be determined the facts of each case.” (Quoted in: Dr. Karan Singh v. State of Jammu and Kashmir, 2004 (5) SCC 698, AIR 2004 SC 2480)

In Manju Devi v. State of Bihar, 1999-2 BBCJ 91; 1999-2 BLJR 1226; 1999-2 PLJR 641, it is held as under:

  • “Abandonment would require something for more definite and positive, showing intentional and voluntary relinquishment of a known right absolutely and unconditionally.”

In Kanhiya Shanker v. Mohabata Sedhu, AIR 1960 P&H 494, it is held as under:

  • “7. The courts do not presume in favour in favour of abandonment and the onus rests on the party asserting abandonment. It is, therefore, incumbent upon the party pleading abandonment to establish his plea. In this case, defendants No. 1, the appellants before us, who set up abandonment, have to prove the same by unequivocal and decisive evidence.
  • Abandonment means the Act of intentionally relinquishing a known right absolutely and unconditionally and without reference to any particular person or persons. In this case it has to be a voluntary relinquishing a known right absolutely and unconditionally and without reference to any particular person or persons. In this case it has to be a voluntary relinquishment of possession of the property by its owners with the intention of terminating their ownership but without vesting it in any other person.
  • A person abandoning his property gives up all hope, expectation or intention of recovering his property. The property, after it is abandoned, results in complete divestiture of the title of its owner and having ceased to be his property it becomes the subject of appropriation by the first taker or by its occupant who reduces it to his possession. Abandonment is not a surrender of property because the latter term connotes its relinquishment to another. It is an Act whereby a person gives up his ownership without creating proprietary rights in another person.
  • 8. There are two primary elements of abandonment, namely the intention to abandon and the external Act by which effect is given to the intention and both these elements must concur. The intention must be clear and unmistakable indicating that it is the ownership which is being relinquished and not the possession or any other sub-ordinate right consistent with the retention of ownership. A person abandoning permanently divests himself of his title. The Act of abandonments from its very nature has to be voluntary, absolute and unconditional, excluding element of coercion, and pressure of any kind. In order to see that the plea of abandonment is proved in a particular case, the Courts have to ascertain the existence of affirmative and unmistakable evidence leading to the exclusive inference of intentional relinquishment of property and repudiation of ones ownership.
  • Mere non-user over a long period unaccompanied by any other evidence showing clear intention, will not be held sufficient to constitute and abandonment. By itself, therefore, an absence from land for a long time will not amount to an abandonment though this circumstance may have a considerable probative force. In such a case the party asserting abandonment has to show that the owner left the premises without any intention to repossess or reclaim them for himself. Abandonment of immovable property necessarily implies non-user, but non-user per se does not create abandonment, on matter how long it continues. A non-user must, therefore, be accompanies with an intention on the part of the owner to give up the property and for good. The Courts may, however, turn to surrounding circumstances in order to find out whether the renunciation was voluntary and intentional and the external Act evidencing abandonment was motivated by the intention to abandon.
  • Thus a mere failure to occupy land for an indefinite time does not necessarily constitute an abandonment of title or possession, unless there is evidence sufficient to sustain a finding that the property was left without any intention to repossess it and the person abandoning was indifferent as to what may become of it in the future and who may take possession of it or claim title to it. when the expression “abandonment” is used in relation to property, it signifies the complete relinquishment of title, possession or claim, virtually indicating that the property is being thrown away. Abandonment is not equivalent to inaction. A person abandons property when he forsakes it entirely, renounces it utterly and give it up permanent, with an intent never again to claim any right or interest therein.” (Quoted in: Manju Devi v. State of Bihar, 1999-2 BBCJ 91; 1999-2 BLJR 1226; 1999-2 PLJR 641)

In Daulat Singh v. Dilbagh Singh, 2004-136 Punj LR 871, it is observed as under:

  • Mere inactivity or a passive attitude of a person cannot be interpreted as an act of abandonment. In the said case also one Dalip Singh was adopted son of Sajjan Singh. He filed suit for possession. It was held that the plaintiff and the defendant became joint co-sharers in the ancestral land. The court has relied upon a Division Bench judgment reported as Kanhiya Shanker and Ors. v. Mohabata Sedhu and Ors., (1960)62 P.L.R. 494 to hold that in order to establish abandonment there must be an intentional and voluntary relinquishment of right for good without and further the onus to prove abandonment rests heavily on the person who alleges the same.”

Right of Abandonment is an Unrestricted and Inherent Right

Right of abandonment of a transferable property being an unrestricted and inherent right vested with the (transferable) property owners, it is not expressly dealt with in the Transfer of Property Act. It is similar to doctrines of waiver, acquiescence, laches etc. in certain respects; and also akin to estoppel.

Abandonment Recognised in Law

Our Apex Court, in Jai Singh v. Gurmej Singh, 2009-15 SCC 747, laid down that a co-owner can abandon his rights in favour of other joint-owners. It is held as under:

  • “The principles relating to the inter-se rights and liabilities of co-sharers are as follows: ….. Passage of time does not extinguish the right of the co-owner who has been out of possession of the joint property except in the event of ouster or abandonment. …. ”

In Qadir Bux v. Ram Chandra, AIR 1970 All. 289, it was observed as under:

  • “30. The main point for consideration is whether in such circumstances it can be said that the plaintiff had been dispossessed or had discontinued his possession within the meaning of Article 142 of the First Schedule to the Indian Limitation Act. The term “dispossession” applies when a person comes in and drives out others from the possession. It imports ouster: a driving out of possession against the will of the person in actual possession. This driving out cannot be said to have occurred when according to the case of the plaintiff the transfer of possession was voluntary, that is to say, not against the will of the person in possession but in accordance with his wishes and active consent. The term “discontinuance” implies a voluntary act and abandonment of possession followed by the actual possession of another. It implies that the person discontinuing has given up the land and left it to be possessed by anyone choosing to come in. There must be an intention to abandon title before there can be said to be a discontinuance in possession, but this cannot be assumed. It must be either admitted or proved. So strong in fact is the position of the rightful owner that even when he has been dispossessed by a trespasser and that trespasser abandons possession either voluntarily or by vis major for howsoever short a time before he has actually perfected his tittle by twelve years’ adverse possession the possession of the true owner is deemed to have revived and he gets a fresh starting point of limitation – vide Gurbinder Singh v. Lal Singh, AIR 1965 SC 1553. Wrongful possession cannot be assumed against the true owner when according to the facts disclosed by him he himself had voluntarily handed over possession and was not deprived of it by the other side.” (Quoted in Bhikhari v. D.D.C., 2018 (141) RD 130)

Abandonment in claims of Adverse Possession

PT Munichikkanna Reddy v. Revamma, AIR 2007 SC 1753, is the important Supreme Court verdict that discussed various views on doctrine of ‘adverse possession’ and gave a decisive finality on this subject. It is observed in this decision as under:

  • “Adverse possession in one sense is based on the theory or presumption that the owner has abandoned the property to the adverse possessor on the acquiescence of the owner to the hostile acts and claims of the person in possession. It follows that sound qualities of a typical adverse possession lie in it being open, continuous and hostile.”

Thereafter it was emphasised as under:

  • “Therefore, to assess a claim of adverse possession, two-pronged enquiry is required:
  • 1. Application of limitation provision thereby jurisprudentially “willful neglect” element on part of the owner established. Successful application in this regard distances the title of the land from the paper-owner.
  • 2. Specific Positive intention to dispossess on the part of the adverse possessor effectively shifts the title already distanced from the paper owner, to the adverse possessor. Right thereby accrues in favour of adverse possessor as intent to dispossess is an express statement of urgency and intention in the upkeep of the property.”

Estoppel in Law

Section 115 of The Indian Evidence Act, 1872, declares ‘estoppel’ as under:

  • “115. Estoppel — When one person has, by his declaration, act or omission, intentionally caused or permitted another person to believe a thing to be true and to act upon such belief, neither he nor his representative shall be allowed, in any suit or proceeding between himself and such person or his representative, to deny the truth of that thing.”

Abandonment is much more than mere Estoppel, Waiver, Acquiescence or Laches

‘Abandonment’ of a transferable property stands distinguished from waiver, acquiescence, laches and estoppel. In Sha Mulchand and Co., Ltd. v. Jawahar Mills Ltd., Salem, AIR 1953 SC 98, it was held by SR Das, J., after referring various English decisions, as under:

  • “Further, whatever be the effect of mere waiver, acquiescence or laches on the part of a person on his claim to equitable remedy to enforce his rights under an executory contract, it is quite clear, on the authorities, that mere waiver, acquiescence or laches which does not amount to an abandonment of his right or to an estoppel against him cannot disentitle that person from claiming relief in equity in respect of his executed and not merely executory interest.” (Quoted in Prabhakar Gones Prabhu Navelkar v. S.S. Prabhu Navelkar (2019-11 SCALE 381).

It was added in this decision as under:

  • “Two things are thus clear, namely, (1) that abandonment of right is much more than mere waiver, acquiescence or laches and is something akin to estoppel if not estoppel itself, and (2) that mere waiver, acquiescence or laches which is short of abandonment of right or estoppel does not disentitle the holder of shares who has a vested interest in the shares from challenging the validity of the purported forfeiture of those shares.” 

Kalparaj Dharamshi v. Kotak Investment Advisors Ltd., 2021-10 SCC 401, it is observed as under:

  • Waiver is an intentional relinquishment of a right. It involves conscious abandonment of an existing legal right, advantage, benefit, claim or privilege.”

Abandonment amounts to Estoppel (Certainly) Stops setting up a Claim

In Prabhakar Gones Prabhu Navelkar v. S.S. Prabhu Navelkar, 2019-11 SCALE 381 (K.M. Joseph, J.), analysing Dr. Karan Singh v. State of J & K, 2004-5 SCC 698, it is observed that ‘in regard to abandonment, the Court’ (that is, Dr. Karan Singh v. State of J & K, 2004-5 SCC 698) ‘referred to the judgment in Mulchand’s case and apparently approved the same‘. Thereafter it is held (in Prabhakar Gones Prabhu Navelkar) as under:

  • “79. Therefore, we would hold that a when vested right is established such as ownership it can be divested only by sale or gift. It will not be possible to hold that mere laches or standing by itself may be sufficient to extinguish title. The majority view in Mulchand (Mulchand v. Jawahar Mills, AIR 1953 SC 98) appears to suggest that there must either be abandonment or estoppel. Justice Vivian Bose takes the view that title can be lost only when estoppel is established. Merely saying that a person has abandoned his property does not lead to extinguishing of vested right such as right to ownership in property. Certainly, an abandonment which amounts to an estoppel would result in stopping a party or his representative from seeking legal redress or setting up the claim in a court of law.”

Acquiescence in Easements Act (Explanation II) to Section 15 

Explanation II to Section 15 of the Easements Act reads as under:

  • “Explanation II: Nothing is an interruption within the meaning of this section unless where there is an actual cessation of the enjoyment by reason of an obstruction by the act of some person other than the claimant, and unless such obstruction is submitted to or acquiesced in for one year after the claimant has notice thereof and of the person making or authorising the same to be made.”

Under Explanation II, ‘interruption’ is suffered –

  • by actual cessation of the enjoyment, and
    • by an obstruction , and
    • by the act of some person other than the claimant, and

See:

  • Eaton v The Swansea Waterworks Co., [1851] EngR 559, 17 QB 267, 117 ER 1282.
  • Prasad v. Patna City Municipality, AIR 1938 Pat 423;
  • Anu Sundar v. Shiva Narain Jaiswal, AIR 1988 Pat 216.
  • Pankan Somanv. C.K. Manoharan, 2019-1 KHC 817,
  • See also: Neil J. Creado v. Shah Abbas Khan, 2020-1 Bom CR 160,
  • Kapilrai Brijbhukhandas v. Parsanben Dhirajlal, 1998-4 Guj CD 2941.

“Obstruction is submitted to or acquiesced in for one year” (in Explanation II) 

Cause of action under Section 15, Easements Act

  • Cause of action under Section 15, Easements Act arises on the next day of completion of 20 years. But, the suit must have been filed within 2 years of such cause of action.
  • Because, Para 5 of Section 15 of the Indian Easements Act, 1882 reads as under:
  • Each of the said periods of twenty years shall be taken to be a period ending within two years next before the institution of the suit wherein the claim to which such period relates is contested..” (We see exactly similar wording in Sec. 25(2), Limitation Act also.)

But Explanation II to Section 15 reads as under:

  • “… unless such obstruction is submitted to or acquiesced in for one year after the claimant has notice thereof and of the person making or authorising the same to be made”.

On analysing the above (apparently inconsistent provisions) it is seen, from the first principles, as under:

  • 1. Explanation II applies when the dominant owner (claimant of the easement) has ‘positively and expressly’ acquiesced the ‘positive and express’ acquiescence in “for one year after the claimant has notice thereof” and has notice “of the person making or authorising the same to be made”.
  • 2. The burden of pleading and proving this ‘positive and express’ act is on the servient owner.
  • 3. It is actually the principle of “estoppel”.

Acquiescence in Adverse Possession matters also

From the above, it appears that the principles as to ‘positive and express’ acquiescence in Explanation II can be brought to cases on willful ‘positive and express acquiescence to the hostile acts of a trespasser in property matters also, and in such cases the true owner of a property lose rights even if 12 year period (for adverse possession) is not perfected.

“A right not exercised for a long time is non-existent

In Chairman, State Bank of India v. MJ James, (2022) 2 SCC 301, relating to disciplinary proceedings against an employee of the Bank, it is observed, as under:

  • “A right not exercised for a long time is non-existent. Doctrine of delay and laches as well as acquiescence are applied to non-suit the litigants who approach the court/appellate authorities belatedly without any justifiable explanation for bringing action after unreasonable delay.”
    • Note:
    • 1. It is doubtful whether mere delay, laches and acquiescence apply to ‘adverse possession’ matter – in view of the specific provisions in the Limitation Act with regard to adverse possession.
    • 2. See doctrines of abandonment (or deliberate relinquishment) and acquiescence amounting to estoppel may have more force on the matter of adverse possession, they being arise from the wilful conduct of the person concerned.

Read Blog: Adverse Possession: An Evolving Concept

Doctrine of Estoppel, delay, laches, acquiescence – applied to non-suit litigants

It is held, in Chairman, State Bank of India v. MJ James, (2022) 2 SCC 301, further as under:

  • 29. Before proceeding further, it is important to clarify distinction between ‘acquiescence’ and ‘delay and laches’.
  • Doctrine of acquiescence is an equitable doctrine which applies when a party having a right stands by and sees another dealing in a manner inconsistent with that right, while the act is in progress and after violation is completed, which conduct reflects his assent or accord. He cannot afterwards complain.#  In literal sense, the term acquiescence means silent assent, tacit consent, concurrence, or acceptance*/*,  which denotes conduct that is evidence of an intention of a party to abandon an equitable right and also to denote conduct from which another party will be justified in inferring such an intention*# .  Acquiescence can be either direct with full knowledge and express approbation, or indirect where a person having the right to set aside the action stands by and sees another dealing in a manner inconsistent with that right and inspite of the infringement takes no action mirroring acceptance**. However, acquiescence will not apply if lapse of time is of no importance or consequence. 
    • # (See Prabhakar v. Joint Director, Sericulture Department, (2015) 15 SCC 1. Also, see Gobinda Ramanuj Das Mohanta v. Ram Charan Das and Suyamal Das, AIR 1925 Cal 1107)
    • */*(See M/S Vidyavathi Kapoor Trust v. Chief Commissioner Tax, (1992) 194 ITR 584).
    • *# (See Krishan Dev v. Smt. Ram Piari AIR 1964 HP 34)
    • **(See “Introduction”, UN Mitra, Tagore Law Lectures – Law of Limitation and Prescription, Volume I, 14th Edition, 2016)
  • 30. Laches unlike limitation is flexible. However, both limitation and laches destroy the remedy but not the right. Laches like acquiescence is based upon equitable considerations, but laches unlike acquiescence imports even simple passivity. On the other hand, acquiescence implies active assent and is based upon the rule of estoppel in pais. As a form of estoppel, it bars a party afterwards from complaining of the violation of the right. Even indirect acquiescence implies almost active consent, which is not to be inferred by mere silence or inaction which is involved in laches. Acquiescence in this manner is quite distinct from delay. Acquiescence virtually destroys the right of the person*#. Given the aforesaid legal position, inactive acquiescence on the part of the respondent can be inferred till the filing of the appeal, and not for the period post filing of the appeal. Nevertheless, this acquiescence being in the nature of estoppel bars the respondent from claiming violation of the right of fair representation.
  • *# (See M/S Vidyavathi Kapoor Trust v. Chief Commissioner Tax (1992) 194 ITR 584 )

Abandonment and Section 9, TP Act – Deed Not Required

Section 9 Transfer of Property Act states that a transfer of property may be made by oral transfer and without writing in every case in which writing is not expressly required by law. TP Act does not require execution of a document when a property is abandoned. (See: Narsingdas Takhatmal v. Radhakisan Rambakas, 1952-54 BomLR 492; Peddu Reddiar v. Kothanda Reddi, AIR 1966 Mad 419).

In Ramdas Chimna v. Pralhad Deorao, AIR 1965 Bom 74, it is held as follows:

  • “The relinquishment by Bainabai of her interest in the joint family property was merely abandonment of here interest in the joint family property in favour of her two sons. Such a relinquishment or abandonment of interest in the joint family property, even though it consists of immoveable properties and is of the value of Rs. 100/- and upwards, can be effected without a written instrument, though if one is executed, it would undoubtedly require registration under Section 17 of the Registration Act, Gauri Bai v. Gaya Bai, AIR 1927 Nag. 44.”

In The Weavers Mills Ltd. v.  Balkis Ammal, AIR 1969 Mad 462, it is observed, referring Sec. 9 as under:

  • “That section says that a transfer of property may be made without writing in every case in which a writing is not expressly required by law. The Transfer of Property Act is not exhaustive of the kind of transfers. We are inclined to agree with the proposition of Ramaswami J., in Sarandaya Pillai v. Sankarlinga Pillai, 1959-2 Mad LJ 502, at p. 503 namely, that
    • “the test, therefore, in this country to determine whether a transaction (be it a transfer or not) can be made without writing is to see if it is expressly required by law to be in writing. If the transaction is a ‘transfer of property’ and there is no express provision of law requiring it to be in writing. Section 9 will enable it to be made without writing. If on the other hand, the transaction is not a ‘transfer of property’ and there is no express provision of law requiring it to be in writing, the general principle referred to above will enable it to be validly made without writing.”
  • The learned Judge, if we may say so with respect, rightly pointed out that Section 9 underlines the general principle that everything is to be taken permissible unless there is a prohibition against it and has been inserted in the statute ex abundanti cautela.”

End Notes

Escheat and Bona Vecantia – Incidents of Sovereignty

Who is the ultimate owner of a property?

The answer is: ‘The State’.

Because, the reply to the following question, that determines the ‘ultimate ownership’ of a property, is – ‘the State’. The question is:

  • Who is the owner of the property:
    • that is abandoned by all, that has no rightful owner or over which all claims raised are invalid; and
    • over which none can raise a valid claim?

Our Apex Court, in Pierce Leslie and Co. Ltd. v. Violet Ouchterlong Waoshare, AIR 1969 SC 843,  appraised the principles of escheat in the Constitutional context (particularly, Article 296 of the Constitution) and held as under:

  • “In this country escheat is not based on artificial Rules of Common Law and is not an incident of feudal tenure. It is an incident of sovereignty and rests on the principle of ultimate ownership by the State of all property within its jurisdiction.”

Bona vacantia:  It is the legal principle that asserts that the Crown takes (as bona vacantia) goods in which no one else can claim property as a rightful owner.

Article 296 of the Constitution Asserts These Rights

Article 296 of the Constitution of India reads as under:

  • Property accruing by escheat or lapse or as bona vacantia – Subject as hereinafter provided, any property in the territory of India which, if this Constitution had not come into operation, would have accrued to His Majesty or, as the case may be, to the Ruler of an Indian State by escheat or lapse, or as bona vacantia for want of a rightful owner, shall if it is property situate in a State, vest in such State, and shall, in any other case, vest in the Union.”

Read Blog: Ultimate Ownership of All Property Vests in State; It is an Incident of Sovereignty.

Who gets Rights in the Abandoned Property?

It depends upon the nature of the property; such as, movable or immovable property. Prior ownership, possession existed at the time of abandonment, duration of possession after abandonment, etc. are also important. In most cases, especially in immovable properties, it is reverted back to the prior owners or other co-owners.

Generally speaking, subject to the custom and the special or common law on this subject, the rights on abandoned properties are acquired ‘by the Occupant, who first took possession of them with the intention of keeping them as his own‘ as stated by Sir Henry Sumner Maine in “Ancient Law”, Chapter-VIII, ‘The Early History of Property’. It reads as under:

  • “Occupancy is the advisedly taking possession of that which at the moment is the property of no man, with the view (adds the technical definition) of acquiring property in it for yourself. The objects which the Roman lawyers called res nullius — things which have not or have never had an owner–can only be ascertained by enumerating them. Among things which never had an owner are wild animals, fishes, wild fowl, jewels disinterred for the first time, and lands newly discovered or never before cultivated. Among things which have not an owner are movables which have been abandoned, lands which have been deserted, and (an anomalous but most formidable item) the property of an enemy. In all these objects the full rights of dominion were acquired by the Occupant, who first took possession of them with the intention of keeping them as his own–an intention which, in certain cases, had to be manifested by specific acts.” (Quoted in Bhikhari v. DDC, 2018 (141) RD 130 (Sudhir Agarwal, J.)

Read in this Cluster  (Click on the topic):

Book No, 1 – Civil Procedure Code

Power of attorney

Title, ownership and Possession

Principles and Procedure

Land LawsTransfer of Property Act

Evidence Act – General

Contract Act

Easement

Stamp Act

Will

Book No. 2: A Handbook on Constitutional Issues

Book No. 3: Common Law of CLUBS and SOCIETIES in India

Book No. 4: Common Law of TRUSTS in India

Secondary Evidence of Documents & Objections to Admissibility – How & When?

Saji Koduvath, Advocate, Kottayam.

Key Takeaways

  • Oral Evidence as to Contents of a Marked Document is Irrelevant and Inadmissible.
  • No Application Needed for leading Secondary Evidence, under Section 65.
  • Best Available Evidence must be Produced; If Not, Adverse Presumption will be Taken.
  • There is No Bar for Exhibiting Photocopy of a Sale Deed; Certified Copy cannot be Insisted citing Section 65 clause (f).
  • Who Should Object FIRST – Court or Opposite Side? Two Views:
    • First view: Court is under an obligation to exclude.
    • Second view: If no objection, Court has to mark,
  • Secondary-evidenceMarked Without Objection – Objection stands waived.
  • Admission of Contents of a Document may Dispense With ProofBut Probative Value thereof might be Less Or Nil.

PART I

Best Evidence Rule Insists Primary Evidence

Contents of documents are to be proved by the document itself; or, its copy. Best evidence rule insists production of original (i.e., primary evidence) when it exists. 

‘Oral evidence as to the contents of a document is admissible only in rare occasions’. It is the purposive scheme of the Evidence Act – as emanated from Sections 59, 61, 6264, 65 and 144.

Sec. 59 of the Evidence Act reads as under:

  • “59. Proof of facts by oral evidence —  All facts, except the contents of documents or electronic records, may be proved by oral evidence.”

Sec. 61 of the Evidence Act reads:

  • 61. Proof of contents of documents—The contents of documents may be proved either by primary or by secondary evidence.

Sec. 62 defines primary evidence to mean ‘the document itself’ produced for the inspection of the Court.

Sec. 64 of the Act requires that that the documents to be proved primarily by ‘primary evidence’, except in cases where secondary evidence is provided under Sec. 65.  

Sec. 65, clause (a) to (g) delineates the cases in which secondary evidence relating to documents may be given.

Sec. 144 of the Evidence Act reads as under:

  • 144. Evidence as to matters in writing—Any witness may be asked, whilst under examination, whether any contract, grant or other disposition of property, as to which he is giving evidence, was not contained in a document, and if he says that it was, or if he is about to make any statement as to the contents of any document, which, in the opinion of the Court, ought to be produced, the adverse party may object to such evidence being given until such document is produced, or until facts have been proved which entitle the party who called the witness to give secondary evidence of it.
  • Explanation.—A witness may give oral evidence of statements made by other persons about the contents of documents if such statements are in themselves relevant facts.
  • Illustration. The question is, whether A assaulted B. C deposes that he heard A say to D — “B wrote a letter accusing me of theft, and I will be revenged on him”. This statement is relevant as showing A’s motive for the assault, and evidence may be given of it, though no other evidence is given about the letter.

When Document Available, Oral EVIDENCE as to its Contents Discarded

Oral evidence as to the contents of a document is admissible only in rare occasions. As observed in Shiba Sankar Nanda v. Padmini Naik, ILR 2011-1 Cut (Ori) 792, ‘it is settled principle of law that where documentary evidence is available, no amount of oral evidence against the admitted document is admissible nor can be considered by the Court’. Sections 22, 59, 61, 6264, 65 and 144 of the Evidence Act support this view.

Sec. 22 If Document Available, Oral ADMISSIONS of its Author Ignored

Sec. 22 of the Evidence Act reads as under:

  • 22. When oral admissions as to contents of documents are relevant.—Oral admissions as to the contents of a document are not relevant, unless and until the party proposing to prove them shows that he is entitled to give secondary evidence of the contents of such document under the rules hereinafter contained, or unless the genuineness of a document produced is in question.

Sec. 22 emphasises one thing positively – excepting the two circumstances exempted (when entitled to give secondary evidence and the genuineness of a document is in question) oral admissions on contents of a document (i.e. admission by its author or a person under him) are not relevant. In other words, even if such an evidence is tendered it will not be looked into by the court.

Sec. 22 primarily pertains to ‘admission’; and it does not deal with the ‘entitlement’ to produce a Secondary Evidence as ‘Proof’. Because, Sec. 22 is included in the sections that deal with ‘Admissions’; and it comes in Part I, Chapter II, which speaks on ‘Relevancy of Facts’; and not in Part that relates to ‘Proof’, that is Part II. It is further clear from the marginal note (or heading) of Sec. 22 (‘When oral admissions as to contents of documents are relevant’).

At the same time it must be seen that Section 22 marches in Chapter II, which speaks on ‘Relevancy of Facts’. Sec. 5 raises a total bar to irrelevant ‘evidence’. Sec. 5 of the Evidence Act reads as under:

  • “Section 5: Evidence may be given of facts in issue and relevant facts:
  • Evidence may be given in any suit or proceeding of the existence or non-existence of every fact in issue and of such other facts as are hereinafter declared to be relevant, and of no others.”

Therefore, Sec. 22 bars the author and persons under him from giving oral evidence as to contents of the document, if the document is available.

Statements of Witnesses as Explanation of Admitted Document is also Excluded

As already shown, the oral statements of witnesses as regards the contents in an admitted document is irrelevant and therefore liable to be eschewed. Further, Sec. 93 and 94 speak as to exclusion of evidence (i) that intend to ‘explain or amend ambiguous document’ and (ii) that stands ‘against application of the document to existing facts’.

Will Erroneous or Misguided Oral Evidence on Contents of a Document Harm its Author?

No. Because, such evidence is ‘irrelevant’.

Words in the Instruments Matters; Not the Presumed Intention

Brett L.J. in Re Meredith, ex parte Chick, (1879) 11 Ch D 731, observed as under:

  • “I am disposed to follow the rule of construction which was laid down by Lord Denman and Baron Parke ……. They said that in construing instruments you must have regard not to the presumed intention of the parties, but to the meaning of the words which they have used.” (Quoted in: VS Talwar v. Prem Chandra Sharma, AIR 1984 SC 664; Damodaram Pillai v. Dhanalakshmi Ammal, (1981) 1 MLJ 171; Thomas v. AA Henry, 2008(2) KLT 63.)

Read Blog: Oral Evidence on Contents of Document, Irrelevant

Documentary Evidence and Proof of Oral Evidence of its ‘Contents

In Bhima Tima Dhotre v. The Pioneer Chemical Co. (1968) 70 BomLR 683,  it is observed as under:

  • Documentary evidence becomes meaningless if the writer has to be called in every case to give oral evidence of its contents. If that were the position, it would mean that, in the ultimate analysis, all evidence must be oral and that oral evidence would virtually be the only kind of evidence recognised by law. That, however, is not the position under the Evidence Act. … Section 59 of the said Act enacts that all facts, except the “contents” of documents, may be proved by oral evidence. This provision would clearly indicate that to prove the contents of a document by means of oral evidence would be a violation of that section.”

‘Rule of Best Evidence’ As regards Documents in the Evidence Act

Sections 22, 59, 61, 62, 64 and 144 of the Evidence Act project the ‘rule of best evidence’ and it directs that the contents of the document are to be proved by the original document itself, unless secondary evidence is provided under Sec. 65. (See: Bimla Rohal v. Usha, 2002-2 HLJ 745; 2002-2 Shim LC 341)

Sec. 91 and 92 provides that when terms of a contract, or of a grant, or of any other disposition of property, have been reduced to the form of a document, and in all cases in which any matter is required by law to be reduced to the form of a document, their terms alone are taken to be the sources of what the parties wished to state; and oral evidence to the contrary, are excluded.

The word ‘disposition’ is not a ‘term of law’ as observed in Pushpalatha N V v.  V Padma, AIR 2010 Kant 124.  It is said as under:

  • “The term ‘disposition’ has been defined in Stroud’s Judicial Dictionary as a devise ‘intended to comprehend a mode by which property can pass, whether by act of parties or by an act of the law’ and ‘includes transfer and change of property. The word ‘disposition’ means giving away or giving up by a person of something which was his own. It is not a term of law. In has no precise meaning. Its meaning has to be gathered from the context in which it is used. The word ‘disposition’ in relation to property means disposition made by deed or will and also disposition made by or under a decree of a court. The word ‘disposition’ would ordinarily be used in reference to a written document and not to the effect of that document. The removal of a thing from one’s self is involved in a disposal. The disposition is the provision creating the interest, not the interest itself. Therefore, disposition means a plan or arrangement for the disposal, distribution of something; definite settlement with regard to some matter.”

Both Sec. 91 and 92 are also based on “best evidence rule”. (S. Saktivel v. M. Venugopal Pillai 2007-7  SCC 104; Mumbai International Airport v. Golden Chariot Airport, (2012) 10 SCC 422; Tulsi v. Chandrika Prasad, AIR 2006 SC 3359).

The Supreme Court held in Roop Kumar v. Mohan Thedani: AIR 2003 SC 2418, as under:

  • “The grounds of exclusion of extrinsic evidence are:
  • (i) to admit inferior evidence when law requires superior would amount to nullifying the law,
  • (ii) when parties have deliberately put their agreement into writing, it is conclusively presumed, between themselves and their privies, that they intended the writing to form a full and final statement of their intentions, and one which should be placed beyond the reach of future controversy, bad faith and treacherous memory.”

However, it is held in Jahuri Sah v. Dwarka Prasad Jhunjhunwala, AIR 1967 SC 109, that oral evidence can be given on a matter (adoption) which is not required by law to be in writing and it is not barred for the mere reason it was contained in a document. It is held as under:

  • “This admission, however, would not render oral evidence inadmissible because it is not by virtue of a deed of adoption that a change of status of a person can be effected. A deed of adoption merely records the fact that an adoption had taken place and nothing more. Such a deed cannot be likened to a document which by its sheer force brings a transaction into existence. It is no more than a piece of evidence and the failure of a party to produce such a document in a suit does not render oral evidence in proof of adoption inadmissible.”

EXCEPTIONS to Rule of Irrelevancy of Oral Evidence under Sec. 92, Evidence Act

Sec. 92 Evidence Act reads as under:

  • 92. Exclusion of evidence of oral agreement—When the terms of any such contract, grant or other disposition of property, or any matter required by law to be reduced to the form of a document, have been proved according to the last section, no evidence of any oral agreement or statement shall be admitted, as between the parties to any such instrument or their representatives in interest, for the purpose of contradicting, varying, adding to, or subtracting from, its terms

Following are the exceptions in (the provisos of) Sec. 92 Evidence Act to the general rule as to bar of oral evidence on contents of documents:

  • Provisos to Sec. 92:
    • Proviso (1). –– Any fact may be proved which would invalidate any document, or which would entitle any person to any decree or order relating thereto; such as fraud, intimidation, illegality, want of due execution, want of capacity in any contracting party, want or failure] of consideration, or mistake in fact or law.
    • Proviso (2). ––The existence of any separate oral agreement as to any matter on which a document is silent, and which is not inconsistent with its terms, may be proved. In considering whether or not this proviso applies, the Court shall have regard to the degree of formality of the document.
    • Proviso (3). ––The existence of any separate oral agreement, constituting a condition precedent to the attaching of any obligation under any such contract, grant or disposition of property, may be proved.
    • Proviso (4). ––The existence of any distinct subsequent oral agreement to rescind or modify any such contract, grant or disposition of property, may be proved, except in cases in which such contract, grant or disposition of property is by law required to be in writing, or has been registered according to the law in force for the time being as to the registration of documents.
    • Proviso (5). –– Any usage or custom by which incidents not expressly mentioned in any contract are usually annexed to contracts of that description, may be proved:
    • Provided that the annexing of such incident would not be repugnant to, or inconsistent with, the express terms of the contract.
    • Proviso (6). –– Any fact may be proved which shows in what manner the language of a document is related to existing facts.

PART II

Primary and Secondary Evidence

Sec. 61 of the Evidence Act directs that the contents of documents may be proved either by primary or by secondary evidence.

Sec. 62 says that Primary evidence means the document itself produced for the inspection of the Court.

Sec. 63 lays down the mode of secondary evidence permitted by the Act.  It reads as under:

  • 63. Secondary evidence means and includes
    • (1) Certified copies given under the provisions hereinafter contained;
    • (2) Copies made from the original by mechanical processes which in themselves insure the accuracy of the copy, and copies compared with such copies;
    • (3) Copies made from or compared with the original;
    • (4) Counterparts of documents as against the parties who did not execute them;
    • (5) Oral accounts of the contents of a document given by some person who has himself seen it.”

Secondary Evidence of Documents Permitted in Clauses (a) to (g) of Sec. 65

As pointed out earlier, Sec. 64 of the Evidence Act stipulates that documents must be proved by primary evidence except in the cases mentioned in Sec.65.

Clauses (a) to (g) of Sec. 65 delineate the cases in which secondary evidence relating to documents may be given.

Sec. 65 reads as under:

  • “65. Cases in which secondary evidence relating to documents may be given. Secondary evidence may be given of the existence, condition, or contents of a document in the following cases:
  • (a) When the original is shown or appears to be in the possession or power— of the person against whom the document is sought to be proved, or of any person out of reach of, or not subject to, the process of the Court, or of any person legally bound to produce it, and when, after the notice mentioned in section 66, such person does not produce it;
  • (b) when the existence, condition or contents of the original have been proved to be admitted in writing by the person against whom it is proved or by his representative in interest;
  • (c) when the original has been destroyed or lost, or when the party offering evidence of its contents cannot, for any other reason not arising from his own default or neglect, produce it in reasonable time;
  • (d) when the original is of such a nature as not to be easily movable;
  • (e) when the original is a public document within the meaning of section 74;
  • (f) when the original is a document of which a certified copy is permitted by this Act, or by any other law in force in India to be given in evidence.
  • (g) when the originals consists of numerous accounts or other documents which cannot conveniently be examined in Court, and the fact to be proved is the general result of the whole collection.
  • In cases (a), (c) and (d), any secondary evidence of the contents of the document is admissible.
  • In case (b), the written admission is admissible.
  • In case (e) or (f), a certified copy of the document, but no other kind of secondary evidence, is admissible.
  • In case (g), evidence may be given as to the general result of the documents by any person who has examined them, and who is skilled in the examination of such documents.

Sec. 65 clause (f)Certified Copy is Permitted “to be Given in Evidence

Sec. 65 clause (f) reads as under:

  • “When the original is a document of which a certified copy is permitted by this Act, or by any other law in force in India to be given in evidence”.
    • “Permitted … to be given in evidence” connoteswithout “reference to” or without explaining “where the original is”.

It applies when the original is a document of which certified copy is “permitted to be given in evidence” either by Evidence Act or by any other law in force in India. See:

  • Lalpratapsing Shivsahaysing v. State, 1963 CrLJ 355; 1963 GLR 448
  • Hanumappa Bhimappa Koujageri v. Bhimappa Sangappa Asari, ILR 1996 Kar 1517; 1996-5 KarLJ 67
  • Saudul Azeez v. District Judge, Gorakhpur, 1999 (4) AWC 3213
  • Hindustan Petroleum Corporation Limited v. Badri Nath Khanna, 2015  All CJ 328; 2014-3 ARC 667; 2015-126 Rev Dec 762
  • Gonepalli Rajamallaiah v. Ragipalli Rajaram, 2017-3 ALD 511; 2017-3 ALT 245
  • Hari Om Gupta v. Jyoti Bhatia, 2020 8 ADJ 31; 2020 140 All LR 557; 2020 3 AWC 2930.
    • Note: There would have been no need or scope for a prob, in all these cases, if there was a comma (,) after the words “or by any other law in force in India”; or there was no comma (,) after the words “permitted by this Act”, in the original text of the Act.

Certified copy of a Regd. Sale Deed does not fall u/s. 65(f)

Section 76 of the Evidence Act provides for certified copies. Genuineness of certified copies can be presumed under Section 79 read with ‘regularity’ under Sec. 114, Evidence Act. Therefore, the certified copy of a registered sale deed shall be admissible as secondary evidence, as provided under Sec. 63.  In this regard, following questions are often raised:

Is there Total Bar for Exhibiting Photocopy of a Sale Deed (Other Than a Certified Copy) under Section 65 clause (f)? Is Certified Copy of a Sale Deed Essential?

The answer is ‘No’.

The doubt arises from or ‘in terms of‘ clauses (e) and (f) of Sec. 65.

Sec. 65 clauses (e) and (f) read as under:

  • “(e) when the original is a public document within the meaning of section 74;
  • (f) when the original is a document of which a certified copy is permitted by this Act, or by any other law in force in India to be given in evidence.”

Sec. 65 further lays down –

  • “In case (e) or (f), a certified copy of the document, but no other kind of secondary evidence, is admissible.”

By virtue of the above provisions in Sec. 65, it is often debated that ‘a certified copy’ of the Sale Deed alone, and “no other kind of secondary evidence, is admissible”. It is not well-founded; because,

  • (1) the copy of the deeds in the Books in the Sub Registrar’s Office is not “a public document within the meaning of section 74” – referred to in clauses (e) of Sec. 65.
  • (2) the copy of the deeds in the Books in the Sub Registrar’s Office is not “a document of which a certified copy is permitted by this Act, or by any other law in force in India to be given in evidence” – referred to in clauses (f) of Sec. 65.

No (procedural) law permits production of ‘certified copy’ of a sale deed, in the court, without saying where the original is or it is lost (i.e., without laying the foundational evidence for the non production of the original) .

Therefore, it is beyond doubt that any (admissible) kind of secondary evidence of a sale deed can be given in evidence.

  • Note: In C. Assiamma v. State Bank of Mysore, 1992 -74 Com Cas 139, it is pointed out that, for the purposes of creating an equitable mortgage, the copy of a transfer-deed is not (ordinarily) a ‘document of title’, and that there may be cases where the original document is lost and there are no chances of that document being made use of for any purpose; and in such a circumstance the next best evidence of the owner’s title to the property would be a certified copy of that document.

Rule of ‘Next Best Evidence’

But, as stated above, under the Rule of Best Evidence, the law mandates production of the next best evidence, if it is not possible to produce the best evidence. Certified Copy of the sale deed obtained from the Sub Registrar’s office is the is the ‘next best evidence‘ so far as a Sale deed is concerned. Hence it may be insisted. The following decisions clearly explain the legal position:

  • Balkar Singh v. State of Punjab, 2005 (1) RCR (Criminal) 576 : 2005 Cri LJ (NOC) 180 (the school record is the  next best evidence in the absence of any entry in the office of Registrar of Births and Deaths.)
  • Jagdamba Tea Factory v. Parshotam Kishan, 2008-3 PunLR 388, 2008-3 RCR(CIVIL) 17,
  • 2008-1 RCR(RENT) 507 (Where there is no lease deed nor any receipt, the rate of rent could well be determined on the basis of house-tax register, which is the  next best evidence available. Gurinder Singh v. Kundan Lal, 2005(1) RCR(Rent) 332 : 2005(2) CCC 128 was relied on, where entries in the municipal house tax register was considered.)
  • Chiman Lal v. Datar Singh, 1998 CriLJ 267, 1997 (1) WLN 396.
  • M/s. MAVR Nataraja Nadar v. State Bank of India, 1993(1) LW 456

Best Evidence Rule is Insisted on ‘Evidence of High Probative Value

Though various kinds of secondary evidences are provided under Sec. 63, the ‘probative value’ of one kind (say, a photograph/photostat of an original document, as stated in Illustration (a) of Sec. 63) will definitely be higher when compared with another (say, oral account). The best evidence rule insists for evidence bearing high ‘probative value’. In State of Bihar v. Radha Krishna Singh (AIR 1983 SC 684) it is observed as under:

  • “Admissibility of a document is one thing and its probative value quite another—these two aspects cannot be combined. A document may be admissible and yet may not carry any conviction and weight or its probative value may be nil.”

Read Blog: Best Evidence Rule in Indian Law

Secondary Evidence would be Admissible only in Exceptional Cases

It is pointed out by our Apex Court in various decisions including M. Chandra v. M. Thangamuthu, (2010) 9 SCC 712, that the production of primary document is the rule; the secondary evidence would be admissible (without the ‘foundational evidence’) only in exceptional cases (Sec. 65, clauses ‘e’ and ‘f’). Primarily, to admit secondary evidence:

  • (i) there should be authenticated foundational evidence that the alleged copy is in fact a true copy of the original, and
  • (ii) the party concerned was genuinely unable to produce the original.

If Plea, Executant Has Not Signed And Document Forged, Need Not Adduce Evidence

In Mamndra Kumardey v. Mahendra Suklabaidya, 1999 GauLR  2219, it was observed as under:

  • “As pointed out by the Apex Court in AIR 1971 SC 2548 (Dattatriya-Vs-Raj Nath) what facts and circumstances have to be established to prove the execution of a document depend on the plea put forward. If the only plea taken is that the executant has not signed the document and the document is forgery, the party seeking to prove the execution of a document need not adduce evidence to show that the party who signed the document knew the contents of the same. If there is a plea regarding contents, it may be necessary to place materials regarding contents and knowledge of the executant of the contents.” (Quoted in Akbarbhai Kesarbhai Sipai v Mohanbhai Ambabhai Patel, 2019-3 GLH 523)

If Certified Copies, How Signatures/Thumb Impression To Be Proved

Mamndra Kumardey v. Mahendra Suklabaidya, 1999 GauLR  2219, continued as under:

  • “The next question is the presumption of execution under Registration Act and how far it dispenses with the proof as required under Section 67 of the Evidence Act. The Sections throwing light on this are the Sections 58, 39 and 60 of the Registration Act. Section 58 provides for particulars to be endorsed on documents admitted to registration, Section 59 provides that the endorsements are to be dated and signed by registering officer, Section 60 provides for certificate of registration. The law on this point is that presumption under Section 60(2) of the Registration Act cannot take the place of proof as required by Section 67 of the Evidence Act when witnesses are available to prove the document in the manner as laid down in Evidence Act. If that is not adhered to it may open a floodgate of fraud and a court has a duty/obligation to close it. A certified copy usually will be a weak piece of evidence and it can never take place of the original, the original has its own worth and value as a piece of evidence. Under the Registration Manual signatures/thumb impression of the executant are to be taken in a Register by the Registering Officer, in case of certified copies even that may be proved.” (Quoted in Akbarbhai Kesarbhai Sipai v Mohanbhai Ambabhai Patel, 2019-3 GLH 523)

PART III

MARKING OF DOCUMENTS LIABLE TO BE OBJECTED FOR ‘SECONDARY EVIDENCE

Following are improper modes (liable to objection):

  • Seeking exhibition through one who cannot vouchsafe veracity.
  • Objectionable (mode of) secondary evidence. Eg:
    • Certified copy produced without proving circumstances that entitles to give secondary evidence under Sec. 65 of the Evd. Act.
    • Secondary evidence other than that is recognised under Sec. 63 .
  • Unstamped or insufficiently/improperly stamped document.

Documents Marked Without Objection as to its MODE OF PROOF – Effect

The law prevails in India is the following –

  • If documents marked without objection as to its mode of proof,  it is not open to the other side to object to their admissibility afterwards.
  • Following are the decisive decisions in this line.
P.C. Purushothama Reddiar v. S.Perumal,(1972) 1 SCC 9 (Three Judge Bench – A.N. Grover, K.S. Hegde, A.N. Ray, JJ.)Admissibility of police reports without examining the Head Constables who covered those meetings. Those reports were marked without any objection.  Hence it was not open to the respondent to object to their admissibility.Relied on:
Bhagat Ram v. Khetu Ram, AIR 1929 PC 110.
R.V.E. Venkatchalla Gounder v. Arulmighu Viswesaraswamy and V.P.Temple, (2003) 8 SCC 752 (R.C. Lahoti, Ashok Bhan, JJ.)Photo copies were admitted in evidence ‘without foundation‘ and without objection. They cannot be held inadmissible for originals were not produced.Relied on:
Padman v. Hanwanta, AIR 1915 PC 111 P.C. Purushothama Reddiar v. S.Perumal
PC Thomas v. PM Ismail, AIR 2010 SC 905; 2009-10 SCC 239.Non-examination of Witness to Prove Truth-
If no objection on ‘mode of proof’ in trial court, it will be too late (in appeal) to raise objection on the ground of mode of proof – that is, “non production of John K as a witness”.
Rafia Sultan v. Oil And Natural Gas Commission (I.C. Bhatt, S.B. Majmudar, JJ.), 1986 ACJ 616; 1986 Guj LH 27; 1985-2 GujLR 1315No objection about the truth of contents of Ex. 32. The witness of the defendant accepted the contents. Therefore, too late in the day to canvass that contents of Ex. 32 were not proved.
Smt. Dayamathi Bai v. K.M. Shaffi, AIR 2004 SC 4082Objection to be taken    at     trial before document is marked as an ‘exhibit’.   Relied on:
Gopal Das v. Sri Thakurji R.V.E. Venkatachala Gounder
Sarkar on Evidence .If copies of the documents are admitted without objection in the trial Court, no objection can be taken in appealReferred to in:
Smt. Dayamathi Bai v. K.M. Shaffi, AIR 2004 SC 4082.

It was observed by the Supreme Court in Bipin Shantilal Panchal v. State of Gujarat, AIR 2001 SC 1158, that that ‘it is an archaic practice that during the evidence collecting stage, whenever any objection is raised regarding admissibility of any material in evidence the court does not proceed further without passing order on such objection’. And the Court directed as under:

  • “When so recast, the practice which can be a better substitute is this: Whenever an objection is raised during evidence taking stage regarding the admissibility of any material or item of oral evidence the trial court can make a note of such objection and mark the objected document tentatively as an exhibit in the case (or record the objected part of the oral evidence) subject to such objections to be decided at the last stage in the final judgment.”

But, the subsequent decisions in R.V.E. Venkatachala Gounder v. Arulmigu Viswesaraswami: AIR 2003 SC  4548; Dayamathi Bai v. K.M. Shaffi : AIR 2004 SC 4082: (2004) 7  SCC 107 took a contra view. It was held that the objection as to ‘mode of proof’ should be taken at the time of marking of the document as an exhibit, so that the defect can be cured by the affected party.

In Chikka Narasappa v. Venkatamma, 2015-1 AIR Kar. Reports  845, ILR 2015 Kar 907, the ‘ordinary rule’ as to the time of determining questions as to the admissibility of evidence is laid down as under:

  • “An objection should be taken when the evidence is tendered and not before. The proper time to object to the admissibility of evidence is when the evidence is tendered. The time for determining questions as to the admissibility of evidence is ordinarily the time when they arise i.e., when the evidence is offered, instead of admitting the evidence in the first instance and reserving the question of law as to its admissibility until the end of the trial.”

Admissibility, Reliability of Documents be Considered at Hearing

In K. Mallesh v. K. Narender, 2015-12 Scale 341; 2016-1 SCC 670 (Anil R. Dave, Adarsh Kumar Goel, JJ.) allowed an appeal setting aside the order passed in an interlocutory stage, during the pendency of a suit, holding as under:

  • “2. In our opinion the High Court should not have interfered at the stage when the trial was still in progress. Therefore, we set aside the impugned order passed by the High Court without going into the merits of the case. We say that the admissibility, reliabiity and registrability of the documents shall be considered independently only at the time of hearing of the trial and not prior thereto. All questions with regard to the aforesaid issues shall remain open.

Who Should Object FIRST – Court or Opposite Side?

There is divergence of judicial opinion as to saying ‘NO’ by court to marking a document with formal defect, beforehand it is objected by the other side. Eg. Tendering copy of a document without furnishing the ‘foundational evidence’ to admit secondary evidence.

First view
Court is under an obligation to exclude inadmissible materials.
H. Siddiqui v. A. Ramalingam: AIR 2011 SC 1492 (Followed in: U. Sree  v.  U. Srinivas: AIR 2013 SC 415.)
Yeshoda v. Shoba Ram:  AIR 2007 SC 1721
Second view
The court cannot object first.
If no objection for other side, Court cannot refrain from marking a document on its own volition or choice (on the ground of formal defect).
R.V.E. Venkatchalla Gounder v. Arulmighu Viswesaraswamy and V.P. Temple, (2003) 8 SCC 752
Smt. Dayamathi Bai v. K.M. Shaffi, AIR 2004 SC 4082.
(This view is generally followed in India.)

Failure to Raise Objection as to Irregularity of mode,  Amounts to Waiver

In RVE Venkatachala Gounder v. Arulmigu Viswesaraswami, AIR 2003 SC 4548: 2003-8 SCC 752 it is held “failure to raise timely objection” as to the irregularity of mode adopted for proving a document “amounts to waiver“.

  • (Therefore it is clear that ‘objection’ is a matter that primarily remains in the realm of the opposite party; rather than the court).

In RVE Venkatachala Gounder, our Apex Court held as under:

  • “Ordinarily an objection to the admissibility of evidence should be taken when it is tendered and not subsequently. The objections as to admissibility of documents in evidence may be classified into two classes:
    • (i) an objection that the document which is sought to be proved is itself inadmissible in evidence; and
    • (ii) where the objection does not dispute the admissibility of the document in evidence but is directed towards the mode of proof alleging the same to be irregular or insufficient.
  • In the first case, merely because a document has been marked as ‘an exhibit’, an objection as to its admissibility is not excluded and is available to be raised even at a later stage or even in appeal or revision. In the latter case, the objection should be taken before the evidence is tendered and once the document has been admitted in evidence and marked as an exhibit, the objection that it should not have been admitted in evidence or that the mode adopted for proving the document is irregular cannot be allowed to be raised at any stage subsequent to the marking of the document as an exhibit. The later proposition is a rule of fair play. The crucial test is whether an objection, if taken at the appropriate point of time, would have enabled the party tendering the evidence to cure the defect and resort to such mode of proof as would be regular. The omission to object becomes fatal because by his failure the party entitled to object allows the party tendering the evidence to act on an assumption that the opposite party is not serious about the mode of proof. On the other hand, a prompt objection does not prejudice the party tendering the evidence, for two reasons: firstly, it enables the Court to apply its mind and pronounce its decision on the question of admissibility then and there; and secondly, in the event of finding of the Court on the mode of proof sought to be adopted going against the party tendering the evidence, the opportunity of seeking indulgence of the Court for permitting a regular mode or method of proof and thereby removing the objection raised by the opposite party, is available to the party leading the evidence. Such practice and procedure is fair to both the parties. Out of the two types of objections, referred to hereinabove, in the later casefailure to raise a prompt and timely objection amounts to waiver of the necessity for insisting on formal proof of a document, the document itself which is sought to be proved being admissible in evidence. In the first case, acquiescence would be no bar to raising the objection in superior Court.”

Controversy resolved

  • 1. The court cannot object first. If no objection for other side, Court cannot refrain from marking a document on its own volition (on the ground of formal defect).
    • R.V.E. Venkatchalla Gounder v. Arulmighu Viswesaraswamy and V.P.Temple, (2003) 8 SCC 752;
    • Smt. Dayamathi Bai v. K.M. Shaffi, AIR 2004 SC 4082.
  • 2. If the deficiency is pertaining to non-registration of a compulsory registrable document (as it falls under the head, inadmissible document) the court can desist the marking of the document.
  • 3. By virtue of the decision, G. M. Shahul Hameed v. Jayanthi R. Hegde, AIR 2024 SC 3339, unless the court has not applied its mind to the insufficiency of stamp, and unless there is a ‘judicial determination‘, the objection thereof can be raised at any time.

First view: Court is under an obligation to exclude.

  • Can the court throw-away a Copy strait-away, for not laying down ‘foundational facts’ for its acceptance, is an interesting question.
  • Similarly, whether the copy must have been authenticated by cogent evidence, before exhibiting the same, that it is the true copy, is also an important question.

S. 65, Evidence Act enumerates the instances where a party is entitled to furnish secondary evidence.  It is a condition precedent to establish the circumstances laid down in S. 65, for letting in secondary evidence of a document.  Pointing out the right and duty of the court to prevent rushing of inadmissible and irrelevant evidence, it is held in a good number of decisions that the court is under an obligation to exclude such materials, at the threshold. [See: Yeshoda v. Shoba Ram:  AIR 2007 SC 1721; U. Sree  v. U. Srinivas: AIR 2013 SC 415]

Proof of Certified Copies Permitted by S. 77; Correctness Presumed by S. 79

Sec. 77 of the Evidence Act permits to produce certified copies of public documents in proof of its contents.  Sec. 77 reads as under:

  • “77. Proof of documents by production of certified copies- Such certified copies may be produced in proof of the contents of the public documents or parts of the public documents of which they purport to be copies.”

In Kalyan Singh v. Chhoti, AIR 1990  SC 396, our Apex Court did not act upon the ‘just an ordinary copy‘, for, there was “also no evidence regarding content of the original sale deed”. It reads as under:

  • Section 63 of the Evidence Act mentions five kinds of secondary evidences. Clause (1), (2) and (3) refer to copies of documents; clause (4) refers to counterparts of documents and clause (5) refers to oral accounts of the contents of documents. Correctness of certified copies referred to in clause (1) is presumed under Section 79; but that of other copies must be proved by proper evidence. A certified copy of a registered sale deed may be produced as secondary evidence in the absence of the original. But in the present case Ex. 3 is not certified copy. It is just an ordinary copy. There is also no evidence regarding content of the original sale deed. Ex. 3 cannot, therefore, be considered as secondary evidence. The appellate Court has a right and duty to exclude such evidence.”
    • Note: It is clear that the word, “considered” is used to denote “accepted“.

In H. Siddiqui v. A. Ramalingam: AIR 2011 SC 1492 it is held as under:

  • “12. The provisions of Section 65 of the 1872 Act provide for permitting the parties to adduce secondary evidence. However, such a course is subject to a large number of limitations. In a case where the original documents are not produced at any time, nor has any factual foundation been laid for giving secondary evidence, it is not permissible for the court to allow a party to adduce secondary evidence. Thus, secondary evidence relating to the contents of a document is inadmissible, until the non-production of the original is accounted for, so as to bring it within one or other of the cases provided for in the section. The secondary evidence must be authenticated by foundational evidence that the alleged copy is in fact a true copy of the original. Mere admission of a document in evidence does not amount to its proof. Therefore, the documentary evidence is required to be proved in accordance with law. The court has an obligation to decide the question of admissibility of a document in secondary evidence before making endorsement thereon. (Vide Roman Catholic Mission v. State of Madras [AIR 1966 SC 1457] , State of Rajasthan v. Khemraj [(2000) 9 SCC 241 : AIR 2000 SC 1759] , LIC v. Ram Pal Singh Bisen [(2010) 4 SCC 491 : (2010) 1 SCC (L&S) 1072 : (2010) 2 SCC (Civ) 191] and M. Chandra v. M. Thangamuthu [(2010) 9 SCC 712 : (2010) 3 SCC (Civ) 907])”.
  • H. Siddiqui v. A. Ramalingam is followed in U. Sree  v.  U. Srinivas: AIR 2013 SC 415

Second view: If No objection, Court has to mark

It is beyond doubt that marking of documents lie in the realm of procedural law.  Therefore, a catena of decisions emphasize that it is a matter that falls for the opposite party to waive strict formal proof.  That is, the court should not delve to object marking of a secondary evidence, if the opposite party has no objection.  [See: Iqbal Basith v. N Subbalakshmi, (2021) 2 SCC 718; RVE Venkatachala Gounder v. Arulmigu Viswesaraswami: AIR 2003 SC 4548; Narbada Devi v. Birendra Kumar: 2003-8 SCC 745; Dayamati Bai v. K.M. Shaffi: AIR 2004 SC 4082;  Oriental Insurance Co v. Premlata:  2007-8 SCC 575] Karnataka High Court pointed out in Nanda Behera v. Akhsaya Kumar Behera, 2017AIR (CC) 1893, that once the Court, rightly or wrongly, decides to admit the documents in evidence, so far as the parties are concerned, the matter is closed. This principle is followed in the following cases, with respect to insufficiently stamped document:

  • Pankajakshan Nair v. Shylaja: ILR 2017-1 Ker 951;
  • Dundappa v. Subhash Bhimagouda Patil: 2017-3 AIR(Kar)(R) 570;
  • Savithramma R. C. v. Vijaya Bank; AIR 2015 Kar 175;
  • Jayalakshmamma v. Radhika: 2015 4 KarLJ 545;
  • K. Amarnath v. Smt. Puttamma: ILR 1999 Kar. 4634

Secondary Evidence – Should Non-production of Original (Invariably) be Accounted for

Two views exists.

First view: Secondary evidence relating to the contents of a document is inadmissible, until the non-production of the original is accounted for. The secondary evidence must be authenticated by foundational evidence that the alleged copy is in fact a true copy of the original. Mere admission of a document in evidence does not amount to its proof. Therefore, the documentary evidence is required to be proved in accordance with law.

The court has an obligation to decide the question of admissibility of a document in secondary evidence before making endorsement thereon. [H. Siddiqui v. A. Ramalingam: AIR 2011 SC 1492; Nandkishore Lalbhai Mehta v. New Era Fabrics: AIR  2015  SC 3796]

In Rakesh Mohindra v. Anita Beri [2015AIR(SCW) 6271] it is held:

  • Mere admission of secondary evidence, does not amount to its proof. The genuineness, correctness and existence of the document shall have to be established during the trial and the trial court shall record the reasons before relying on those secondary evidences.”

Second View: Doctrine of Waiver – It being a matter ‘with reference to’ admissibility of a document doctrine, of waiver applies.

Apparent Confutation Solved – The apparent confutation in this regard can be resolved taking following propositions:

  • Assertive conditions in Sec. 65 as to production of secondary evidence is mandatory in nature; but not indispensable for it can be waived by the other side, it being a procedural in character.
  • The court has discretion in ‘insisting‘ original or an authenticated copy; for, it can resort to:
    • (i) best evidence rule,
    • (ii) doctrine on probative value of evidence and
    • (iii) theory of judicial-conscience, justice etc.

No Application Needed for Filing or Admitting Secondary Evidence

Section 65of the Evidence Act permits secondary evidence in the circumstances or contingencies mentioned therein. The admissibility of the evidence, and the question whether the conditions for leading the secondary evidence are satisfied or not, comes for consideration only in the trial and at the time of exhibiting the document. It is no doubt clear that before adducing the secondary evidence, the party concerned has to establish that the situation stipulated in section 65 exists.

No Petition for Filing or Admitting Photocopy

Our Apex Court held in Dhanpat v. Sheo Ram, 2020 SCC Online SC 606, as under:

  • “20. There is no requirement that an application is required to be filed in terms of Section 65(c) of the Evidence Act before the secondary evidence is led. A party to the lis may choose to file an application which is required to be considered by the trial court but if any party to the suit has laid foundation of leading of secondary evidence, either in the plaint or in evidence, the secondary evidence cannot be ousted for consideration only because an application for permission to lead secondary evidence was not filed.”

In Satyam Kumar Sah v. Narcotic Control Bureau, 2019 SCC OnLine Del 8409, it is pointed out that Section 65 does not contemplate filing of any application or seeking prior permission of the court for leading secondary evidence; and that merely because an application under Section 65, Indian Evidence Act was filed and allowed, would not ipso facto make secondary evidence admissible, which is otherwise inadmissible.

Loss of Original: It is incumbent upon the party producing the secondary evidence to prove the loss of original under Sec. 65 Clause (c).  Permission is also needed to lead secondary evidence.

In a suit for specific performance, in Hira v. Smt. Gurbachan Kaur, 1988 (2) PLR 173, photocopy of the suit agreement alone was produced. After beginning evidence it was submitted that original was lost and application was filed seeking permission to adduce copy. Besides the delay in submitting loss of original, the plaintiff did not state when and under what circumstance the original was lost. In these circumstances the High Court found that the denial of permission to lead secondary evidence, by the trial court, was justifiable. (See also: Gurditta v. Balkar Singh, 1989 (1) PLR 418; Sobha Rani v. Ravikumar– AIR 1999 P&H 21).

In Raj Kumari v. Lal Chand, 1994 (1) Civil Court Cases 477, an issue was raised as to whether the applicant was entitled to secondary evidence. Therefore, it was held that the loss of the document was not required to be proved before trial, on the application under Section 65 Evidence Act.

  • Note: It appears that in a proper case, in its very peculiar facts, it may be justified in non-suiting the plaintiff, taking a preliminary issue on non-production of original, or insufficiency of grounds for non-production of original; but, it appers, it cannot be taken as a general rule.

Photocopy is a Reliable Secondary Evidence

It falls under Sec. 63(2) it being the product of ‘mechanical processes which in themselves insure the accuracy of the copy‘.

As regards Photocopy, it is laid down in Surinder Kaur v. Mehal Singh, 2014(1) R.C.R. (civil) 467 (P&H) as under:

  • “a) Photostat copy of a document can be allowed to be produced only in absence of original document.
  • b) When a party seeks to produce Photostat copy it has to lay the foundational facts by proving that original document existed and is lost or is in possession of opposite party who failed to produce it.
  • Mere assertion of the party is not sufficient to prove these foundational facts.
  • c) The objections as to non existence of such circumstances or non existence of foundational facts must be taken at earliest by the opposite party after the photostat copy is tendered in evidence.
  • d) When the opposite party raises objection as to authenticity of the Photostat copy its authenticity has to be determined as every copy made from a mechanical process may not be accurate. Both the requirements of clause (2) of section 63 are to be satisfied.
  • e) Allowing production of Photostat copy in evidence does not amount to its proof. Its probative value has to be proved and assessed independently. It has to be shown that it was made from original at particular place and time.
  • f) In cases where the Photostat copy is itself suspicious it should not be relied upon. Unless the court is satisfied that the Photostat copy is genuine and accurate it should not be read in evidence.
  • g) The accuracy of Photostat copy shall be established on oath to the satisfaction of court by the person who prepared such copy or who can speak of its accuracy.”
    • Note: It appears that the proposition, ‘accuracy shall be established on oath’, is a surplusage (for, a photocopy, by itself, ‘insures the accuracy of the copy’ under Sec. 63, and the court is free to apply the presumptions under Sec. 114).

What are the instances where Notice is not required to render Secondary Evidence 

As per Section 66, there is no need to render a notice for tendering a secondary evidence:

  • “(1) when the document to be proved is itself a notice;
  • (2) when, from the nature of the case, the adverse party must know that he will be required to produce it;
  • (3) when it appears or is proved that the adverse party has obtained possession of the original by fraud or force;
  • (4) when the adverse party or his agent has the original in Court;
  • (5) when the adverse party or his agent has admitted the loss of the document;
  • (6) when the person in possession of the document is out of reach of, or not subject to, the process of the Court.”

Read Blog: Notice to Produce Documents in Civil Cases

Copy Attestation by Notary Public

In Prataprai Trumbaklal Mehta v. Jayant Nemchand Shah, AIR 1992 Bom 149, the Bombay High Court has pointed out that Rule 10(1) of the Notaries Rules, 1956 prescribed fees for certifying copies of documents as true copies of the original at the rate set forth therein; and that the ‘copy attestation’ of a document made by a notary public was also an official act. Here also, the Bombay High Court, cautioned that the notary must have properly discharged his duty by making due entry in the notary register etc. It is observed in this decision as under:

  • “Notarised copies of power of attorney and other documents are filed with Banks, Courts and other public institutions. If documents are marked as true copy by the notary without taking due care and even making any entry in the notary register and without taking signature of an advocate identifying the executant or without taking other reasonable precaution, it cannot be said that the notary is discharging his duty in accordance with law as expected of him.”

Presumption as to Powers-of-Attorney

Sections 85 Sec. 114 of the Indian Evidence Act, 1872 are germane. Under Sec. 85 there is a presumption as to the authority of the Notary Public. That is, if a document contains the seal and signature of a notary public (including foreign countries like USA, UK, Canada) it is presumed to be genuine; and therefore no further evidence need be produced before the court to prove the seal and signature.

Section 85 of the Indian Evidence Act, 1872 reads as under:

  • 85. Presumption as to powers-of-attorney.—The Court shall presume that every document purporting to be a power-of-attorney, and to have been executed before, and authenticated by, a Notary Public, or any Court, Judge, Magistrate,  Indian Consul or Vice-Consul, or representative of the Central Government, was so executed and authenticated.

The Presumption is Presumption as to Genuineness

In Rajeshwarhwa v. Sushma Govil: AIR 1989 Delhi 144, it is held that the presumption is with respect to attestation by a ‘Competent Notary’ . It reads as under:

"When a seal of the Notary is put on the document, Sec. 57 of the Evidence Act (courts take judicial notice)comes into play and a presumption can be raised regarding the genuineness of the seal of the said Notary, meaning thereby that the said document is presumed to have been attested by a competent Notary of that country."

Further, Sec. 85 of the Indian Evidence Act provides that the Court shall presume that a power of attorney executed before a Notary Public was duly ‘executed’. The presumption drawn is the presumption as to genuineness of (i) its execution, including (ii) identification of its executant. But, it is a rebuttable presumption. In Prataprai Trumbaklal Mehta v. Jayant Nemchand Shah: AIR 1992 Bom 149, it was observed as under:

“Law takes judicial notice of seal of a notary. In ordinary course, an initial presumption may be made about genuineness of the notarised copy of the document. The underlying idea behind such presumption is that the notary is normally a responsible member of the legal profession and he is expected to take due care to satisfy himself about the identity of the party appearing before him.”

The presumption is presumption as to ‘Authentication’ also

S. 85 of the Indian Evidence Act provides that the Court shall presume that a power of attorney was duly ‘authenticated’ by the Notary Public, also. It is pointed out in Kamla Rani v. M/S. Texmaco: AIR 2007 Delhi 147, that the expression ‘shall presume’ in  Section 85  shows that the section is mandatory and that it is well settled that ‘authentication’ would mean more than mere execution.

As stated above, presumption of regularity of official acts can also be invoked and the court can come to a conclusion that the notary public was satisfied himself that the person purported himself had been executed it.

But, the certificate or endorsement of the notary public must apparently show that the notary public had satisfied himself, expressly or impliedly, about the identity of the person executed the document, though there was no prescribed form of authentication.[2] In Prataprai Trumbaklal Mehta v. Jayant Nemchand Shah: AIR 1992 Bom 149, the Bombay High Court cautioned that the notary must have properly discharged his duty by making due entry in the notary register and observing other reasonable precautions.

Read Blog: Notary-Attested Documents: Presumption, Rebuttable

Best Available Evidence must be Produced; If Not, Adverse Presumption will be Taken

It may not be safe to a party to a suit to fall-back technically on non-reception of notice under Sec. 66 Evidence Act, in the teeth of the ‘best evidence rule’.

It is the duty of the party to lead the best evidence in his possession even though onus of proof do not lie on him, and he is not called upon to produce the said evidence; and the Court will draw adverse inference under Section 114(g) of the Evidence Act if such evidence is withheld.

But this rule cannot be applied blindly. Mere non-production of documents would not result in adverse inference, invariably (as shown below). Courts take into consideration the pleadings and decide whether the document/evidence withheld has any relevance. The court also cannot lose sight of the fact that burden of proof is on the party which makes a factual averment. The conduct and diligence of the other party is also important. Existence of some other circumstances may justify non-production (Union of India v. Ibrahim Uddin, (2012) 8 SCC 148).

The rule that best available evidence must be produced is taken in the following cases:

  • Murugesam Pillai v. Gnana Sambandha Pandara Sannadhi, AIR 1917 PC 6; 
  • Hiralal v. Badkulal, AIR 1953 SC 225; 
  • A. Raghavamma v. A. Chenchamma, AIR 1964 SC 136; 
  • The Union of India v. Mahadeolal Prabhu Dayal, AIR 1965 SC 1755; 
  • Gopal Krishnaji Ketkar v. Mohamed Haji Latif, AIR 1968 SC 1413;
  • M/s. Bharat Heavy Electrical Ltd. v. State of U.P.,  AIR 2003 SC 3024;
  • Khatri Hotels Pvt. Ltd. v. Union of India, (2011) 9 SCC 126.

In Mohan Lal Shamlal Soni v. Union of India, AIR 1991 SC 1346, the Supreme Court held as under:

  • “It is a cardinal rule in the law of evidence that the best available evidence should be brought before the Court to prove a fact or the points in issue. But it is left either for the prosecution or for the defence to establish its respective case by adducing the best available evidence and the Court is not empowered under the provisions of the Code to compel either the prosecution or the defence to examine any particular witness or witnesses on their sides. Nonetheless if either of the parties withholds any evidence which could be produced and which, if produced, be unfavorable to the party withholding such evidence, the court can draw a presumption under illustration (g) to Section 114 of the Evidence Act.”

Invoking best evidence rule it is observed by the Supreme Court in Musauddin Ahmed v. State of Assam, (2009) 14 SCC 541, as under:

  • “13. It is the duty of the party to lead the best evidence in its possession which could throw light on the issue in controversy and in case such a material evidence is withheld, the Court may draw adverse inference under Section 114 illustration (g) of the Evidence Act notwithstanding that the onus of proof did not lie on such party and it was not called upon to produce the said evidence (vide Gopal Krishnaji Ketkar v. Mohamed Haji Latif & Ors., AIR 1968 SC 1413).”

In Jitendra v. State of M.P, (2004) 10 SCC 562, our Apex Court observed that charas and ganja seized from the accused was the best evidence in that case and the non-production of the same in court was seriously taken note of by the court and observed that that mere oral evidence as to the same was insufficient.(See also: Mohd. Aman, Babu Khan v. State of Rajasthan, AIR 1997 SC 2960.)

In Tomaso Bruno v. State of U.P, (2015) 7 SCC 178, it is observed as under:

  • “22. To invoke Section 106 of the Evidence Act, the main point to be established by the prosecution is that the accused persons were present in the hotel room at the relevant time. PW-1 Ram Singh-Hotel Manager stated that CCTV cameras are installed in the boundaries, near the reception, in the kitchen, in the restaurant and all three floors. Since CCTV cameras were installed in the prominent places, CCTV footage would have been best evidence to prove whether the accused remained inside the room and whether or not they have gone out. CCTV footage is a strong piece of evidence which would have indicated whether the accused remained inside the hotel and whether they were responsible for the commission of a crime. It would have also shown whether or not the accused had gone out of the hotel. CCTV footage being a crucial piece of evidence, it is for the prosecution to have produced the best evidence which is missing. Omission to produce CCTV footage, in our view, which is the best evidence, raises serious doubts about the prosecution case.”

With regard to adverse presumption the Apex Court held in Tomaso Bruno as under:

  • “28. As per Section 114 (g) of the Evidence Act, if a party in possession of best evidence which will throw light in controversy withholds it, the court can draw an adverse inference against him notwithstanding that the onus of proving does not lie on him. The presumption under Section 114 (g) of the Evidence Act is only a permissible inference and not a necessary inference. Unlike presumption under Section 139 of Negotiable Instruments Act, where the court has no option but to draw statutory presumption under Section 114 of the Evidence Act.”

Non examination of the best person as a witness was also taken seriously by our Apex Court in Jagga Singh v. State of Punjab, AIR 1995 SC 135, observing that ‘the best evidence having not been brought on record’ the it would not be justified, ‘to hold that it was the appellant who had done the mischief’.

In Digamber Vaishnav v. State of Chhattisgarh, (2019) 4 SCC 522 also the Apex Court found fault for making no attempt to examine material witnesses and observed that the best evidence which would have been thrown light on the controversy in question was withheld.

Need for placing best evidence in cases of circumstantial evidence is emphasised in Rajendra Pralhadrao Wasnik v. The State of Maharashtra, AIR 2019 SC 1 also.

Marking Photocopy of 30 Years Old Official Document, without Objection – Falls u/s. 114(e)

It is held in Kalita Iqbal Basith v. N Subbalakshmi, (2021) 2 SCC 718, as regards photocopies of official/public document, marked without objection, as under:

  • “The appellants produced photocopies of all other resolutions, government orders and sale deed in favour of their vendor OA Majid Khan by the Municipality. The failure to produce the originals or certified copies of other documents was properly explained as being untraceable after the death of the brother of P.W.1 who looked after property matters. The attempt to procure certified copies from the municipality was also unsuccessful as they were informed that the original files were not traceable. The photocopies were marked as exhibits without objection. The respondents never questioned the genuineness of the same. Despite the aforesaid, and the fact that these documents were more than 30 years old, were produced from the proper custody of the appellants along with an explanation for non­production of the originals, they were rejected without any valid reason holding that there could be no presumption that documents executed by a public authority had been issued in proper exercise of statutory powers. This finding in our opinion is clearly perverse in view of Section 114(e) of the Indian Evidence Act 1872, which provides that there shall be a presumption that all official acts have been regularly performed. The onus lies on the person who disputes the same to prove otherwise.”

Read Blog: 30 Years Old Documents and Presumption of Truth of Contents, under Sec. 90 Evidence Act

PART IV

EFFECT OF MARKING DOCUMENTS WITHOUT OBJECTION

What is the effect of marking documents without objection; do contents stand proved; does it bar raising objection afterwards?

  • Divergent views are taken by the Courts depending on the facts of each case.
First view
(a) Proof (Contents and ‘Truth of its Contents’) stands established.  It cannot be questioned afterwards.

(b) Truth also: See: Rafia Sultan v. Oil And Natural Gas Commission, 1986 ACJ 616; 1985-2 GujLR 1315; PC Thomas v. PM Ismail, AIR 2010 SC 905.

(c) Admission of contents – but, does not dispense with proof of truth of its contents.
(a) RVE Venkatachala Gounder v. Arulmigu Viswesaraswami: AIR 2003  SC  4548;
(b) Rafia Sultan v. Oil And Natural Gas Commission (I.C. Bhatt, S.B. Majmudar, JJ.), 1985-2 GujLR 1315: No objection about the truth of contents … before the trial Court. … It is therefore too late in the day for Miss Shah for the Commission to canvass for the first time before us in appeal.
Neeraj Dutta Vs. State (Govt. of Delhi) [2023] 4 SCC 731: If no objection as to mode of proof (secondary evidence) when marked, no such objection could be allowed to be raised at any later stage.
(c) Sait Tarajee Khimchand v. Yelamarti Satyam, AIR 1971 SC 1865; Nandkishore Lalbhai Mehta v. New Era Fabrics, AIR 2015 SC 3796.
Second View
Even if no objection, it does not dispense with proof (as to, both, existence of the document and its truth).

In such a case the document will not be taken as proved.

(Note: It may not be legitimate to apply this principle literatim)
LIC v. Ram Pal Singh Bisen: 2010-4 SCC 491 (Filing of the Inquiry Report or the evidence adduced during the domestic enquiry); H. Siddiqui v. A. Ramalingam, (2011) 4 SCC 240 (Copy of a power of attorney alone was shown to the respondent during cross-examination and he admitted his signature thereon only, and not its contents); Mal Singhvi v. Anand Purohith: 1988 (Supp) SCC 604 (date of birth).
Third view
If truth is in issue, mere proof of contents, or marking without objection, is not proof of truth.
See: Narbada Devi Gupta v. Birendra Kumar Jaiswal, 2003-8 SCC 745; Ramji Dayawala Vs. Invest Import: AIR 1981 SC 2085.
Fourth view
Admission of contents, and dispenses with proof and truth; but its probative value will be a matter for appreciation by court.
See: State of Bihar v. Radha Krishna Singh, AIR 1983 SC 684 (Admission and probative value – different); Rakesh Mohindra v. Anita Beri: 2015  AIR(SCW) 6271; Kaliya v. State of MP: 2013-10 SCC 758;  H. Siddiqui v. A. Ramalingam: AIR 2011 SC 1492;  Rasiklal Manikchand  v. MSS Food Products: 2012-2 SCC 196.
Fifth view
Admission of contents, and dispenses with proof and truth; but Court should require (in proper cases) the party producing the document to adduce proper evidence, and to cure formal defects, invoking –
              • Sec. 165 of Evidence Act
              • Sec. 58 of Evidence Act
              • O. XII, r. 2A Proviso, CPC and
              • Sec. 294 of the CrPC.
See: Harkirat Singh v. Amrinder Singh, (2005) 13 SCC 511; Umesh Challiyil v. K.P. Rajendra, (2008) 11 SCC 740; KK Ramachandran Master v. MV Sreyamakumar, (2010) 7 SCC 428; AIR 2015 SC 3796.

1. (a) Once no Objection to Mode of Proof, Right to Objection Stands Waived

 It is trite law that once no-objection is raised to the mode of proof on account of lack of original, then the right of the opposite party to raise objection (on this score) stands waived. RVE Venkatachala Gounder v. Arulmigu, AIR 2003 SC 4548: (2003) 8 SCC 752, is often quoted to establish the proposition – 

It was the position of law accepted by our legal system. See:

  • Sk. Farid Hussinsab v. State of Maharashtra, 1983 CrLJ 487 (Quoted in Sonu @ Amar v. State of Haryana, AIR  2017  SC 3441; 2017-8 SCC 570)
  • Rafia Sultan v. Oil And Natural Gas Commission (I.C. Bhatt, S.B. Majmudar, JJ.), 1986 GujLH 27; 1985-2 GujLR 1315 (relied on:  P. C. Purushottamman v. S. Perumal AIR 1972 SC 608;
  • Pandappa v. Shivlingappa 47 BLR. 962; and
  • Gopaldas  v. ShriThakurli AIR 1943 PC 83).

See also:

  • Lachhmi Narain Singh v. Sarjug Singh, AIR 2021 SC 3873;
  • Sumita @ Lamta v. Devki, (Valmiki J. Mehta, J.), 25 Sep 2017 (indiakanoon);
  • Oriental Insurance Co v. Premlata:  (2007) 8 SCC 575,
  • Dayamathi Bai v. KM Shaffi, (2004) 7 SCC 107, AIR 2004 SC 4082;
  • R.V.E. Venkatachala Gounder v. Arulmigu Viswesaraswami & V.P. Temple, (2003) 8 SCC 752;
  • Narbada Devi  v. Birendra Kumar: (2003) 8 SCC 745
  • Thimmappa Rai v. Ramanna Rai,(2007) 14 SCC 63.

When a document is marked without objection, our courts take two (divergent) views:

  • First, both Contents and ‘Truth of its Contents’ stand proved.
  • Second, contents alone stand proved; and, not ‘Truth’ of its Contents.

Effect of marking document without objection is laid down in the following two recent decisions of the Supreme Court. In both these cases, it is seen, the Apex Court has taken the view that the ‘truth’ is also stood proved.

Neeraj Dutta v. State (Govt.  of N. C. T.  of Delhi)

The Constitution Bench of our Apex Court laid down in Neeraj Dutta v. State (Govt.  of N. C. T.  of Delhi), AIR 2023 SC 330; 2023 4 SCC 731, as under:

  • Section 61 deals with proof of contents of documents which is by either primary or by secondary evidence.
  • When a document is produced as primary evidence, it will have to be proved in the manner laid down in Sections 67 to 73 of the Evidence Act.
  • Mere production and marking of a document as an exhibit by the court cannot be held to be due proof of its contents. Its execution has to be proved by admissible evidence. On the other hand, when a document is produced and admitted by the opposite party and is marked as an exhibit by the court, …  (sic – no objection can be raised at any later stage with regard to proof of its contents).
  • The contents of the document must be proved either by the production of the original document i.e., primary evidence or by copies of the same as per Section 65 as secondary evidence.
  • So long as an original document is in existence and is available, its contents must be proved by primary evidence.
  • It is only when the primary evidence is lost, in the interest of justice, the secondary evidence must be allowed.
  • Primary evidence is the best evidence and it affords the greatest certainty of the fact in question.
  • Thus, when a particular fact is to be established by production of documentary evidence, there is no scope for leading oral evidence.
  • What is to be produced is the primary evidence i.e., document itself. It is only when the absence of the primary source has been satisfactorily explained that secondary evidence is permissible to prove the contents of documents.
  • Secondary evidence, therefore, should not be accepted without a sufficient reason being given for non-production of the original.
  • Once a document is admitted, the contents of that document are also admitted in evidence, though those contents may not be conclusive evidence.
  • Moreover, once certain evidence is conclusive it shuts out any other evidence which would detract from the conclusiveness of that evidence.
  • There is a prohibition for any other evidence to be led which may detract from the conclusiveness of that evidence and the court has no option to hold the existence of the fact otherwise when such evidence is made conclusive.

It is held further as under:

  • “44. Section 64 of the Evidence Act states that documents must be proved by primary evidence except in certain cases mentioned above. ….. Thus, once a document has been properly admitted, the contents of the documents would stand admitted in evidence, and if no objection has been raised with regard to its mode of proof at the stage of tendering in evidence of such a document, no such objection could be allowed to be raised at any later stage of the case or in appeal vide Amarjit Singh v. State (Delhi Admn.) 1995 Cr LJ 1623 (Del) (“Amarjit Singh”). But the documents can be impeached in any other manner, though the admissibility cannot be challenged subsequently when the document is bound in evidence.”

Objection as to non examination of the author is too late in the day 

In PC Thomas v. PM Ismail, AIR 2010 SC 905; 2009-10 SCC 239, it is observed that the objection as to non examination of the author is too late in the day . It is held as under:

  • “No objection on pleas of “inadmissibility” or “mode of proof” was raised at the time of their exhibition or any time later during trial, when most of the witnesses, produced by the parties were confronted with these, as duly exhibited, bearing stamp marking with particulars, prescribed under Order XIII Rule 4 of the Code of Civil Procedure, 1908 and duly signed as such.
  • In our opinion, it is too late in the day now to object to their exhibition on the ground of “prescribed procedure” i.e. mode of proof.
  • Moreover, we also find that it was nobody’s case that the said documents were got printed by John K or distributed amongst voters by him. Absence of proof of acknowledgment by him because of non production of John K as a witness, in the circumstances, in our view, is inconsequential.
  • Admittedly, John K was a well known leader of high stature, recognized as such by Christian/Catholic voters including those mentioned in Para 17 (supra) and, therefore, there is no question of drawing an adverse inference against the election petitioner for not examining him, as strenuously urged on behalf of the appellant, particularly when the printing and circulation of offending material (Exts.P1 and P2) has been proved by the election petitioner beyond reasonable doubt.”

(b) Document marked without objection – Contents (‘TRUTH also) proved

Objection as to Truth of Contents, First Time In Appeal – Effect – Too late in the day

In Rafia Sultan v. Oil And Natural Gas Commission (I.C. Bhatt, S.B. Majmudar, JJ.), 1986 ACJ 616; 1986 Guj LH 27; 1985-2 GujLR 1315 it is observed as under:

  • “It was never the case of the Commission that report which was submitted in a sealed cover was not the genuine and true report of the committee appointed by the Commission itself. Thus in short no objection about the truth of contents of Ex. 24/1 i. e. Ex. 32 was ever put forward before the trial Court and rightly so as that was the report of its own committee of experts appointed by the Commission for enlightening itself about the causes of the accident and about the future safety steps which were required to be taken to avoid such accidents. … Not only that but the witness of the defendant accepted the contents of the said document Ex. 32. Nothing was suggested by him or even whispered to the effect that the contents of the said report were in any way untrue. …. In fact both the sides have relied upon different parts of Ex. 32 in support of their rival contentions on the aspect of negligence and contributory negligence. It is therefore too late in the day for Miss Shah for the Commission to canvass for the first time before us in appeal that contents of Ex. 32 were not proved in accordance with law and hence the document was required to be taken off the record. It is now well settled that objection about mode of proof can be waived by a party and that such objection is raised by the party at the earliest opportunity in the trial Court such objection will be deemed to have been waived and cannot be permitted to be raised for the first time in appeal (vide P. C. Purushottamman v. S. Perumal AIR 1972 SC 608; Pandappa v. Shivlingappa 47 BLR. 962; and Gopaldas and another v. Shri Thakurli, AIR 1943 PC 83 at page 87 ). In view of this settled legal position the objection raised by Miss Shah against admissibility of Ex. 32 viz. that its contents were not proved in accordance with law has to be repelled.”

When a document is marked without objection, no doubt, the presumption in Sec. 114 of the Evidence Act is wide enough to presume that (i) the “contents” of the document and (ii) its ‘truth’ stand ‘proved’. Therefore, it is the duty of the other side to express its disapproval – that it does not accept the ‘contents’ and/or ‘truth’ (if it is so).

The dissent thereof can be placed by the opposite side by-

  • Raising ‘objection’ at the time of its marking, or
  • Placing the protest by way of ‘suggestion’ to the witness or by proper questions.

(c) TRUTH is left to Discretion (Sec. 3) & Presumption (Sec. 114) of Court

Sec. 67, Evidence Act lays down the fundamental principles as to the proof of documents. Sec. 67 reads as under:

“67. Proof of signature and handwriting of person alleged to have signed or written document produced—If a document is alleged to be signed or to have been written wholly or in part by any person, the signature or the handwriting of so much of the document as is alleged to be in that person’s handwriting must be proved to be in his handwriting.”

Sec. 67 says as to ‘proof of signature and handwriting’ alone. Neither Sec. 67 nor any other section of the Evidence Act says about ‘proof as to truth‘ of contents of documents.

Inferences as to “TRUTH of contents

  • Evidence Act does not expressly proffer anything as to “TRUTH of contents” of documents.
  • It is left to the discretion (Sec. 3) of the court. In proper cases court can presume (Sec. 114) truth.
  • In most cases, ‘proof of execution’ leads the court to presume ‘proof of truth’.
  • It is more so, when a document is admitted (by the other side) without objection.
  • But, when proof as to ‘truth’ is in issue, or in dispute, the party in whom the burden thereof rests has to discharge it.

(d) Legal Position on ‘Waiver’ of Mode of Proof, Reprised

It appears that the legal position can be summed-up as under –

  • If a document is marked without objection, the right of objection (vested with the other side) stands waived And the entire contents of the document will be admissible in evidence.
  • However, if (i) there is any intrinsic infirmity to the document, or (ii) specific proof as to truth is required in the nature of the case of the parties, or it is marked through a witness who is incompetent to prove it (and the opposite party does not expressly or impliedly accepted it), the court can say – it is not ready to act upon it, for truth or correctness of contents is not established.

In Dibakar Behera v. Padmabati Behera, AIR 2008 Ori  92, it is pointed out that (in such a situation) there must be some evidence to support the contents of such document.

The following decisions also lay down the proposition that ‘mere marking of a document’ as an ‘exhibit’ may amount to proof of contents, but not its ‘truth’.

  • Rakesh Mohindra v. Anita Beri, 2015 AIR(SCW) 6271.
  • Kaliya v. State of Madhya Pradesh, 2013-10 SCC 758;
  • Sait Khimchand v. Yelamarti Satyam, AIR 1971 SC 1865;
  • Nandkishore Lalbhai Mehta v. New Era Fabrics, AIR 2015 SC 3796 (“Mere identifying the signature of Mr. Pathak (by a witness) does not prove the contents of the said letter which is being relied upon by the appellant.”);

It is apposite to note – in RVE Venkatachala Gounder v. Arumlmigu Viswesaraswami, AIR 2003  SC  4548, the question as to ‘truth’ of contents did not specifically come for consideration. It is dealt with as under:

  • “Since documents A30 and A34 were admitted in evidence without any objection, the High Court erred in holding that these documents were inadmissible being photo copies, the originals of which were not produced.”

Standard of Proof in Civil Cases – Preponderance of  Probability

It is noteworthy that the standard of proof required in civil cases is different from that of criminal cases; since, civil court proceeds on a preponderance of probability, whereas criminal court insists ‘proof beyond reasonable doubt’. In Miller v. Minister of Pensions, (1947)2 All ER 372, Lord Denning, described preponderance of probability as “more probable than not”. It is said in picturesque as ‘likelihood of 51%’.

Secondary Evidence  Marked Without Objection – Objection stands waived.

When the party gives in evidence a certified-copy/secondary-evidence without proving the circumstances entitling him to give secondary evidence, the opposite party must raise his objection (if so) at the time of admission of such documents. In case, an objection is not raised at that point of time, it is precluded from raising it at a belated stage. It stands waived. [Iqbal Basith v. N Subbalakshmi, (2021) 2 SCC 718; Kaliya v. State of MP: 2013-10 SCC 758]

Marked Without Objection – Do its ‘contents’ stand proved, as admission?

Divergent views exist.

(a) Proof of execution may be enoughIts ‘Contents’ stand proved: Exhibiting of documents in evidence without objection amounts to ‘admission’ of its contents. Admission is taken in law as an important characteristic. In this premises, proof of execution may be enough; and no separate proof be needed. 

When a document is marked without objection, its ‘contents’ stand proved. See: RVE Venkatachala Gounder v. Arulmigu Viswesaraswami: AIR 2003  SC  4548. See also:

  • Narbada Devi  v. Birendra Kumar: (2003) 8 SCC 745
  • Dayamati Bai v. K.M. Shaffi : AIR 2004 SC 4082
  • Oriental Insurance Co. v. Premlata:  (2007) 8 SCC 575
  • Thimmappa Rai v. Ramanna Rai,(2007) 14 SCC 63.

(b) Proof of execution may not be enough: Exhibiting of documents in evidence, without objection, and proving the same before the court are two different process. In certain cases, as comes out from Sec. 56, 57 and 58 of the Evidence Act, when a document is admitted, separate proof need not be warranted. Separate proof may not be required when presumptions can be invoked (e.g. document in ordinary course of business, a letter obtained in reply).

Factual Foundation to give Secondary Evidence must have been Established. The party has to lay down the factual foundation to establish the right to give secondary evidence where the original document cannot be produced. In Rakesh Mohindra v. Anita Beri: 2015AIR(SCW) 6271, it is held as under:

  • “It is well settled that if a party wishes to lead secondary evidence, the Court is obliged to examine the probative value of the document produced in the Court or their contents and decide the question of admissibility of a document in secondary evidence. At the same time, the party has to lay down the factual foundation to establish the right to give secondary evidence where the original document cannot be produced. It is equally well settled that neither mere admission of a document in evidence amounts to its proof nor mere making of an exhibit of a document dispense with its proof, which is otherwise required to be done in accordance with law.” (M. Chandra v. M. Thangamuthu, (2010) 9 SCC 712, relied on)

Mere marking– not dispense with proof (of truth of contents)

Following are the often-cited cases on this subject.

The Proposition -Mere Marking Does Not Prove the Contents  – was NOT applied in the following decisions. 

  DecisionDid the Documents Mark without Proper Proof  was accepted in evidence?Reason for NOT Appling the Proposition Mere Marking Does Not Prove the Contents
Narbada Devi Gupta v. Birendra Kumar Jaiswal, 2003-8 SCC 745Yes.
The rent receipts were received in evidence. (without formal proof)
The rent receipts were ‘not disputed’ by the other side.
Kaliya v. State of Madhya Pradesh2013-10 SCC 758Yes.
The secondary evidence of dying declaration produced in this case was accepted by the Court.
Secondary evidence was adduced with foundational evidence (for producing copy; not original)

The Proposition -Mere Marking Does Not Prove the Contents  – was  applied in the following decisions; but, not unreservedly.

  DecisionDid the proposition – Mere Marking Does Not Prove the Contents – unreservedly apply? Reason for NOT applying the Proposition Mere Marking Does Not Prove  Contents, unreservedly
Ramji Dayawala v. Invest Import: AIR 1981 SC 2085No.
Truth of contents of a letter and two telegrams were not taken. (though marked)
Truth of the facts in the document was “in issue
M. Chandra v. M. Thangamuthu, 2010-9 SCC 712  No.
Validity and Genuineness of the Photocopy (of the Caste Certificate) was not accepted (though marked)
Validity and Genuineness of the Caste Certificate was very much in question
H. Siddiqui v. A. Ramalingam, (2011) 4 SCC 240  No.
Contents of the Photocopy was not received as proof (though marked)
Photocopy was shown to the witness during cross-examination alone, and Signature alone was admitted by the witness.
Tarajee Khimchand v. Yelamarti Satyam, AIR 1971 SC 1865No.
Accounts of the Plaintiff was not received as proof (though marked)
The accounts of the Plaintiff would not be proved by itself

Read Blog: Proof of Documents & Objections To Admissibility – How & When?

Admission of Contents – May Dispense With ProofBut Probative Value may be Less Or Nil

Admissibility & probative value – two matters. In State of Bihar v. Radha Krishna Singh (AIR 1983 SC 684) it is observed:

  • “Admissibility of a document is one thing and its probative value quite another—these two aspects cannot be combined. A document may be admissible and yet may not carry any conviction and weight or its probative value may be nil.”

Court Examines Probative Value of Secondary Evidence: It is well settled that if a party wishes to lead secondary evidence, the Court is obliged to examine the probative value of the document produced in the Court or their contents and decide the question of admissibility of a document in secondary evidence [Rakesh Mohindra v. Anita Beri: 2015  AIR(SCW) 6271].

Contents of the document cannot be proved by mere filing the document in a court. Under the Law of Evidence, it is necessary that contents of documents are required to be proved either by primary or by secondary evidence. Mere marking a document as an ‘exhibit’ will not absolve the duty of to prove the documents in accordance with the provisions of the Evidence Act. At the most, marking ‘exhibit’may amount to proof of contents, but not its truth.

Documents which are not produced and marked as required under the Evidence Act cannot be relied upon by the Court. [See: LIC v. Ram Pal Singh Bisen: 2010-4 SCC 491 (Filing of the Inquiry Report or the evidence adduced during the domestic enquiry); M. Chandra v. M. Thangamuthu, (2010) 9 SCC 712, Nandkishore Lalbhai Mehta v. New Era Fabrics: AIR 2015 SC 3796; Birad Mal Singhvi v. Anand Purohitb: 1988 (Supp) SCC 604 (date of birth)]

Even when a document is technically admitted in court, the probative value thereof will always be a matter for the court to determine. That is, it is depended upon the nature of each case. The probative value of Scene-Mahazar, Postmortem Report, photocopy of a Registered Deed etc. without supporting legal evidence may be lesser. In such cases the court can refrain from acting upon such documents until regular evidence is tendered.

In Kaliya v. State of MP: 2013-10 SCC 758 (relying on  H. Siddiqui v. A. Ramalingam: AIR 2011 SC 1492, and Rasiklal Manikchand  v. MSS Food Products: 2012-2 SCC 196) held as under:

  • “The court is obliged to examine the probative value of documents produced in court or their contents and decide the question of admissibility of a document in secondary evidence.”
  • [Note: Further held: “In case, an objection is not raised at that point of time, it is precluded from being raised at a belated stage.”]

In Life Insurance Corporation of India  v. Ram Pal Singh Bisen [2010-4 SCC 491], it is observed as under:

  • “26. We are of the firm opinion that mere admission of document in evidence does amount to its proof. In other words, mere marking of exhibit on a document does dispense with its proof, which is required to be done in accordance with law. …..27. It was the duty of the appellants to have proved documents Exh.-A-1 to Exh. A-10 in accordance with law. Filing of the Inquiry Report or the evidence adduced during the domestic enquiry would partake the character of admissible evidence in Court of law. That documentary evidence was also required to be proved by the appellants in accordance with the provisions of the Evidence Act, which they have failed to do.”

The Calcutta High Court quoting Life Insurance Corporation of India v. Ram Pal Singh Bisen [2010-4 SCC 491] it is observed in Bajaj Allianz General Insurance Company v. Smt. Santa (2019-2 ACC 36) that even though ‘the document had been marked as Exhibit-A without objection, without a formal proof thereof in accordance with the provisions of the Evidence Act, such document lost its credibility and is of no probative value’.

Court’s Jurisdiction to Require to Prove an Admitted Document

In any case, besides the powers of the court under Sec. 165 of Evidence Act, the scheme of the Procedural Acts (Evidence Act, CPC and CrPC) shows that the court has jurisdiction to require the party concerned to prove that document. We can rely on Sec. 58 of Evidence Act and Order XII, Rule 2A Proviso of the CPC and Sec. 294 of the CrPC to see the scheme of the procedural laws.

Court should allow (parties) to cure Defects Pertaining to Procedural Matters

Defect for not producing a proper power of attorney being curable, in Haryana State Coop.  Supply and Marketing Federation Ltd. v. Jayam Textiles, 2014 AIR SC 1926 (a case under Section 138 Negotiable instruments Act), the Apex Court gave opportunity to the petitioner to produce the authorization of Board of Directors. It is observed that the in Raj Narian v. Indira Nehru Gandhi, (1972) 3 SCC 850 it was held that the rules of pleadings are intended as aids for a fair trial and for reaching a just decision. This principle is reiterated in ever so many cases. They include:

  • F.A. Sapa v. Singora, (1991) 3 SCC 375;
  • H.D. Revanna v. G. Puttaswamy Gowda, (1999) 2 SCC 217;
  • V.S. Achuthanandan v. P.J. Francis, (1999) 3 SCC 737;
  • Mahendra Pal v. Ram Dass Malanger, (2000) 1 SCC 261;
  • Virender Nath Gautam v. Satpal Singh, (2007) 3 SCC 617 (observed that facta probanda (material facts) are to be set out in the pleadings and facta probantia (particulars or evidence) need not be set out in the pleadings);
  • Sardar Harcharan Singh Brar v. Sukh Darshan Singh, (2004) 11 SCC 196 (held that defective verification or affidavit is curable);
  • Harkirat Singh v. Amrinder Singh, (2005) 13 SCC 511;
  • Umesh Challiyil v. K.P. Rajendra, (2008) 11 SCC 740;
  • KK Ramachandran Master v. MV Sreyamakumar, (2010) 7 SCC 428

Conclusion

Inasmuch as (a) mere marking of a document on admission will not (invariably), amount to proof, or evidence of the contents of the document or its truth; (b) the probative value of a document ‘marked without objection’ is low or nil, for want of proper proof; and (c) there is a formal defect to the document for it is a secondary evidence because it is produced without adducing ‘foundational evidence’, it is legitimate to say that before taking an adverse stance as to proof in this count, the court should give an opportunity to the party who relies on the document to cure the deficiency.

The legal position discernible can be summarised as under:

(i) Even when a document is technically ‘admitted’ in court, the probative value thereof will always be a matter for the court; and it is depended upon the nature of each case.

(ii) Whenever the court considers:

  • (a) mere marking of a document on admission will not amount to proof, or
  • (b) mere marking is not evidence of the contents of the document or its truth; or
  • (c) the probative value of a document ‘marked without objection’ is low or nil, for want of proper proof; or
  • (c) there is a formal defect to the document for it is a secondary evidence because it is produced without adducing ‘foundational evidence’;

then,

before taking an adverse stance as to proof (in this count) the court should give an opportunity to the party who relies on the document, to cure the deficiency.

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Read in this Cluster  (Click on the topic):

Book No, 1 – Civil Procedure Code

Power of attorney

Title, ownership and Possession

Principles and Procedure

Land LawsTransfer of Property Act

Evidence Act – General

Contract Act

Easement

Stamp Act

Will

Book No. 2: A Handbook on Constitutional Issues

Book No. 3: Common Law of CLUBS and SOCIETIES in India

Book No. 4: Common Law of TRUSTS in India

PLEADINGS IN ELECTION MATTERS

Jojy George Koduvath.

Abstract

  • Election Petition is not an Action at Common Law, Nor in Equity
  • Trial of Election Petition is Different from Trial of a Civil Suit
  • Election Law – Technical to Safeguard the Purity of the Election Process
  • Strict Pleading; and Evidence in Strict Adherence to Pleading
  • Pleading and Affidavit in Election Cases – to prevent fishing or roving enquiry
  • No wild goose chase allowed
  • Pleadings and Issues are to Narrow the Area of Conflict
  • No Adjudication, If No Issue
  • Objectionable part of the Speech ought to have Pleaded
  • No pleading in respect of the ‘remaining 4 tendered votes’
  • No Amendment of pleading After the Time Limit
  • Evidence led, without objections – Court could evaluate Worth of that evidence.

Code of Civil Procedure 1908

Order VI, rule 1 and 2 of Code of Civil Procedure 1908 lay down the basics of pleading. They read as under:

  • Rule 1: Pleading: “Pleading” shall mean plaint or written statement.
  • Rule 2: Pleading to state material facts and not evidence:
  • (1) Every pleading shall contain, and contain only a statement in a concise form of the material facts on which the party pleading relies for his claim or defence as the case may be, but not the evidence by which they are to be proved.
  • (2) Every pleading shall, when necessary, be divided into paragraphs, numbered consecutively, each allegation being, so far as is convenient, contained in a separate paragraph.
  • (3) Dates, sums and numbers shall be expressed in a pleading in figures as well as in words.

Order 6 rule 4 of the Civil Procedure Code stipulates guidelines for precise pleadings. Order 6 Rule 4 CPC reads as under:

  • “Rule 4. Particulars to be given where necessary: In all cases in which the party pleading relies on any misrepresentation, fraud, breach of trust, willful default, or undue influence and in all other cases in which particulars may be necessary beyond such as are exemplified in the forms aforesaid, particulars (with dates and items if necessary) shall be stated in the pleading.”

Order VIII Rule 3, 4 and 5 CPC reads as under:

  • Rule 3: Denial to be specific: It shall not be sufficient for a defendant in his written statement to deny generally the grounds alleged by the plaintiff, but the defendant must deal specifically with each allegation of fact of which he does not admit the truth, except damages.
  • Rule 4: Evasive denial: Where a defendant denies an allegation of fact in the plaint, he must not do so evasively, but answer the point of substance. Thus, if it is alleged that he received a certain sum of money, it shall not be sufficient to deny that he received that particular amount, but he must deny that he received that sum or any part thereof, or else set out how much he received. And if an allegation is made with diverse circumstances, it shall not be sufficient to deny it along with those circumstances.
  • Rule 5: Specific denial: (1) Every allegation of fact in the plaint, if not denied specifically or by necessary implication, or stated to be not admitted in the pleading of the defendant, shall be taken to be admitted except as against a person under disability :
  • Provided that the Court may in it discretion require any fact so admitted to be proved otherwise than by such admission.
  • (2) Where the defendant has not filed a pleading, it shall be lawful for the Court to pronounce judgment on the basis of the facts contained in the plaint, except as against a person under a disability, but the Court may, in its discretion, require any such fact to be proved.
  • (3) In exercising its discretion under the proviso to sub-rule (1) or under sub-rule (2), the Court shall have due regard to the fact whether the defendant could have, or has, engaged a pleader.
  • (4) Whenever a judgment is pronounced under this rule, a decree shall be drawn up in accordance with such judgment and such decree shall bear the date on which the judgment was pronounced.

Under Order 6 rule 4, CPC, vague or general allegations are insufficient in pleading with respect to the matters laid down in this rule(f.n. 1) and it requires ‘full‘ particulars of such matters in pleadings(f.n. 2).

Why ‘Particulars’ insisted in Pleadings

  • 1. To narrow down the controversy to precise issues: Ladli Prashad Jaiswal v. Karnal Distillery, Co., AIR 1963 SC 1279; Kalyan Singh Chouhan v. C.P.Joshi, AIR 2011 SC 1127; K. Anil Kumar v. Ajith, ILR 2012-4 Ker 632: 2012-4 KLT 545.
  • 2. Notice to other side and ‘protect the party charged with improper conduct from being taken by surprise’: Ladli Prashad Jaiswal. v. Karnal Distillery, Co., AIR 1963 SC 1279; Ram Sarup Gupta v. Bishun Narain Inter College, AIR 1987 SC 1242.  
  • 3. Definiteness to the stance in court. Strictness in pleading ‘material facts’ is adopted in the procedural law also with a view to prevent a party from taking a changed position (from what he had taken at the time of making the pleading) to suit the situation that may be emerged subsequently, and thereby prejudice the other party. 
  • 4. It is court that draws inference as to ‘abstract’ propositions. Plaint should contain plain facts; not law. Presentation of pleadings in mere ‘abstract’ propositions (like: injury, damages, illegality, trust, bias) is improper. Law requires pleading of “material facts” (rule 2 of Order VI) and “particulars” (rule 4 of Order VI). Facts that lead to such inferences must be pleaded in clear terms; and it is for the court to draw a reasonable inference as to such ‘abstract’ propositions or inferences from the facts pleaded and established. (See pleadings as to mere ‘mala fide‘, without details – M. Sankara-narayanan, IAS v. State of Karnataka. AIR 1993 SC 763, Coal India Ltd. v. Ananta Saha, 2011-5 SCC 142; pleadings as to mere ‘consent‘ of a candidate with respect to a corrupt practice, without details – Balan v. Manoharan Master, 1988 (1) KLT 717.
  • 5. Pleadings must be pregnant enough to produce an issue on fact or law, and conduct an investigation (if opposite side varies), inasmuch as a bald and general allegation cannot be sufficient to lead to an issue (K.S. Mariyappa v. K.R. Siddalinga Setty, AIR 1989 Kar 425). General allegations insufficient to take notice by the court, however strong the allegation is (AIR 1977 SC 615).
  • 6. Pleadings constitute the skeleton that give shape to the case. For every motion, including drawing adverse inference for non-production of a document, lack of bonafides etc., the court has to apprise the pleadings (Union of India v. Ibrahim Uddin, (2012) 8 SCC 148).

If no specific pleadings, no evidence can be looked into

In the absence of specific pleadings, no evidence can be looked into in relation thereto.

  • Duggi Veera Venkata Gopala Satyanarayana Vs. Sakala Veera Raghavaiah (1987) 1 SCC 254;
  • Sri Venkataramana Devaru Vs. State of Mysore & Ors. AIR 1958 SC 255;
  • Bhagwati Prasad Vs. Chandramaul, AIR 1966 SC 735
  • Gajanan Krishnaji Bapat Vs. Dattaji Raghobaji Meghe (1995) 5 SCC 347;
  • Ram Sarup Gupta (Dead) By LRs v/s. Bishim Narain Inter College & Ors : (1987) 2 SCC 555.
  • Abubakar Abdul Inamdar Vs. Harun Abdul Inamdar AIR 1996 SC 112,
  • Gulabrao Balawantrao Shinde Vs. Chhabubai Balawantrao (2003) 1 SCC 212
  • Bondar Singh Vs. Nihal Singh (2003) 4 SCC 161
  • M Chandra Vs. M Thangamuthu, AIR 2011 SC 146. 

No party should be Permitted to Travel Beyond its Pleading

In Ram Sarup Gupta v. Bishun Narain Inter College, AIR 1987 SC 1242, it was held as under:

  • “6………It is well settled that in the absence of pleading, evidence, if any, produced by the parties cannot be considered. It is also equally settled that no party should be permitted to travel beyond its pleading and that all necessary and material facts should be pleaded by the party in support of the case set up by it. The object and purpose of pleading is to enable the adversary party to know the case it has to meet…. In such a case it is the duty of the court to ascertain the substance of the pleadings to determine the question.”

Trial of Election Petition is Different from Trial of a Civil Suit

In Kailash v. Nanhku, AIR  2005 SC 2441, our Apex Court held that the trial of an election petition is entirely different from the trial of a civil suit, as in a civil suit trial commences on framing the issues while trial of an election petition encompasses all proceedings commencing from the filing of the election petition up to the date of decision. Therefore, the procedure provided for the trial of civil suits under CPC is not applicable in its entirety to the trial of the election petition. For the purpose of the election petition, the word ‘trial’ includes the entire proceedings commencing from the time of filing the election petition till the pronouncement of the judgment. Relying on Kailash v. Nanhku it is observed in Kalyan Singh Chouhan v. C P  Joshi, AIR 2011 SC 1127, that the applicability of the procedure in Election Tribunal is circumscribed by two riders :

  • first, the procedure prescribed in CPC is applicable only “as nearly as may be”, and
  • secondly, the CPC would give way to any provisions of the Act or any rules made thereunder.

Therefore, the procedure prescribed in CPC applies to election trial with flexibility and only as guidelines.

Election Law – Technical to Safeguard the Purity of the Election Process

In Harcharan Singh v. S. Mohinder Singh, AIR 1968 SC 1500, our Apex Court pointed out that the election dispute was a statutory proceeding that required strict compliance, observing as under:

  • “The statutory requirements of election law must be strictly observed. An election dispute is a statutory proceeding unknown to the common law; it is not an action at law or in equity. …… The primary purpose of the diverse provisions of the election law which may appear to be technical is to safeguard the purity of the election process, and the Courts will not ordinarily minimise their operation.” (Quoted in Kalyan Singh Chouhan VS C. P.  Joshi, AIR 2011 SC 1127).

Election Petition is not an Action at Common Law, Nor in Equity

In Jyoti Basu v. Debi Ghosal,  AIR 1982 SC 983, also it was pointed out that an election petition was not an action at Common Law, nor in equity. The Supreme Court observed as under:

  • “A right to elect, fundamental though it is to democracy, is, anomalously enough, neither a fundamental right nor a Common Law Right. It is pure and simple, a statutory right. So is the right to be elected. So is the right to dispute an election. Outside of statute, there is no right to elect, no right to be elected and no right to dispute an election. Statutory creations they are, and therefore, subject to statutory limitation. An election petition is not an action at Common Law, nor in equity. It is a statutory proceeding to which neither the common law nor the principles of equity apply but only those rules which the statute makes and applies. It is a special jurisdiction and a special jurisdiction has always to be exercised in accordance with the statute creating it. Concepts familiar to Common Law and Equity must remain strangers to Election Law unless statutorily embodied. A Court has no right to resort to them on considerations of alleged policy because policy in such matters, as those, relating to the trial of election disputes, is what the statute lays down. In the trial of election disputes, Court is put in a straight jacket. …… We have noticed the necessity to rid ourselves of notions based on Common Law or Equity. We see that we must seek an answer to the question within the four corners of the statute.” (Quoted in Kalyan Singh Chouhan v.  CP  Joshi, AIR 2011 SC 1127).

Strict Pleading; and Evidence in Strict Adherence to Pleading

In Gajanan Krishnaji Bapat v. Dattaji Raghobaji Meghe, AIR 1995 SC 2284, our Apex  Court held that the court cannot consider any fact which was beyond the pleadings of the parties; and that the parties have to take proper pleadings and establish by adducing evidence that by a particular irregularity/illegality the result of the election has been materially affected. Our Apex Court, further, held as under:

  • “To say the least, it was not a desirable or a proper course to be adopted in an election petition where, as pointed out by this Court in Jagannath Vs. Jaswant Singh (1954 SCR 892), the statutory requirements of the law of election must be strictly observed.”

Pleadings play an important role – Section 83 of the RP Act mandatory and requires

Section 83 of The Representation of the People Act, 1951 reads as under:

  • “83. Contents of petition.—
  • (1) An election petition—
    • (a) shall contain a concise statement of the material facts on which the petitioner relies;
    • (b) shall set forth full particulars of any corrupt practice that the petitioner alleges including as full a statement as possible of the names of the parties alleged to have committed such corrupt practice and the date and place of the commission of each such practice; and
    • (c) shall be signed by the petitioner and verified in the manner laid down in the Code of Civil Procedure, 1908 (5 of 1908) for the verification of pleadings:
      • Provided that where the petitioner alleges any corrupt practice, the petition shall also be accompanied by an affidavit in the prescribed form in support of the allegation of such corrupt practice and the particulars thereof.
  • (2) Any schedule or annexure to the petition shall also be signed by the petitioner and verified in the same manner as the petition”

It was held in Gajanan Krishnaji Bapat v. Dattaji Raghobaji Meghe, AIR 1995 SC 2284, as under:

  • “Since, pleadings play an important role in an election petition, the legislature has provided that the allegations of corrupt practice must be properly alleged and both the material facts and particulars provided in the petition itself so as to disclose a complete cause of action.  Section 83 of the Act provides that the election petition must contain a concise statement of the material facts on which the petitioner relies and further that he must set forth full particulars of the corrupt practice that he alleges including as full a statement as possible of the name of the parties alleged to have committed such corrupt practices and the date and place of the commission of each of such corrupt practice. This Section has been held to be mandatory and requires first a concise statement of material facts and then the full particulars of the alleged corrupt practice. So as to present a full picture of the cause of action.”

From S.N. Balakrishna v. George Fernandez, (1969) 3 SCC 238: AIR 1969 SC 1201, it comes out as to “concise statement of the material facts“, “set forth full particulars of any corrupt practice” and “as full a statement as possible“.

  • The election petition must contain a concise statement of material facts.
  • The word ‘material’ shows that the facts necessary to formulate a complete cause of action must be stated.
  • Full particulars of any corrupt practice should be set forth.
  • It must be including as full a statement as possible of the names of the parties.
  • The date and place of the commission of such practice is mandatory.
  • Omission of a single material fact may lead to an incomplete cause of action.
  • The function of particulars is to present as full a picture of the cause of action.
  • It must be with such further information in detail.
  • It is to make the opposite party understand the case he will have to meet.
  • There may be some overlapping between ‘material facts’ and ‘particulars’ but the two are quite distinct.
  • In the ‘particulars’, the name of the person making the statement, with the date, time and place will be mentioned.
  • The material facts thus will show the ground of corrupt practice.
  • It must also show the complete cause of action.
  • The ‘particulars’ will give the necessary information to present a full picture of the cause of action.
  • The fact which constitutes the corrupt practice must be correlated to one of the heads of corrupt practice.
  • Election petition without the material facts relating to a corrupt practice is no election petition at all.

Pleading and Affidavit in Election Cases – to prevent fishing or roving enquiry

In Gajanan Krishnaji Bapat v. Dattaji Raghobaji Meghe, AIR 1995 SC 2284, 1995 SCC (5) 347, it was held that a petition leveling a charge of corrupt practice was required, by law, to be supported by an affidavit and the election petitioner was also obliged to disclose his source of information in respect of the commission of the corrupt practice. This became necessary to bind the election petitioner to the charge leveled by him and to prevent any fishing or roving enquiry and to prevent the returned candidate from being taken by a surprise. (Samant N. BalakrishnaVs. George Fernandez and others (AIR 1969 SC 1201 was referred to.)

The Supreme Court observed in Kalyan Singh Chouhan v. CP Joshi, AIR 2011 SC 1127,  that during the trial of an election petition, it was not permissible for the court to permit a party to seek a roving enquiry.

In CR  Mahesh v.  R  Ramachandan, (2017 –  Kerala) it is held that specific pleading is necessary with regard to the corrupt practice in an election petition and in the affidavit under Section 123(4) of the R P Act, 1951. When there is no specific pleading to that fact, no specific denial is necessary and the above decision is not binding in this case.

Wide latitude cannot be left in the pleadings – No wild goose chase allowed

In Gajanan Krishnaji Bapat v. Dattaji Raghobaji Meghe, AIR 1995 SC 2284, 1995 SCC (5) 347, the impropriety is described as under:

  • “In the pleadings a wide latitude was left by the election petitioners to lead evidence on any of the various ‘possibilities’ detailed in the election petition. The ‘vagueness’ of the pleadings even after amendment shows that the election petitioners were out on a wild goose chase and trying to fish for evidence so as to be able to fasten some liability on the returned candidate or his election agent at least in some case.”

Pleadings and Issues are to Narrow the Area of Conflict

It is held in Kalyan Singh Chouhan v.  CP  Joshi, AIR 2011 SC 1127, that the pleadings are to help the court in narrowing the controversy involved and to inform the parties concerned to the question in issue, so that the parties may adduce appropriate evidence on the said issue. It is pointed out that it is a settled legal proposition that  ‘as a rule relief not founded on the pleadings should not be granted’ and emphasised that  a decision of a case cannot be based on grounds outside the pleadings of the parties. The pleadings and issues are to ascertain the real dispute between the parties to narrow the area of conflict and to see just where the two sides differ. The Apex Court expressly referred the following decisions:

  • Sri Mahant Govind Rao v. Sita Ram Kesho, (1898) 25 Ind. App. 195;
  • M/s. Trojan & Co. v. RM. N.N. Nagappa Chettiar, AIR 1953 SC 235;
  • J.K. Iron & Steel Co. v. The Iron and Steel Mazdoor Union, AIR 1956 SC 231;
  • Raruha Singh v. Achal Singh & Ors.; AIR 1961 SC 1097;
  • Ram Sarup Gupta v. Bishun Narain Inter College,  AIR 1987 SC 1242;
  • Gajanan Krishnaji Bapat v. Dattaji Raghobaji Meghe, AIR 1995 SC 2284;
  • Om Prakash Gupta v. Ranbir B. Goyal, AIR 2002 SC 665;
  • Kashi Nath v. Jaganath, (2003) 8 SCC 740;
  • Ishwar Dutt v. Land Acquisition Collector, AIR 2005 SC 3165;
  • Bachhaj Nahar v. Nilima Mandal, AIR 2009 SC 1103, and
  • State of Maharashtra v. Hindustan Construction Company  Ltd., (2010) 4 SCC 518.

Read Blog: Pleadings Should be Specific; Why?

No Adjudication, If No Issue

In Kalyan Singh Chouhan v.  CP  Joshi, AIR 2011 SC 1127, the Apex Court held that no courts decide a suit on a matter/point on which no issue has been framed. It is to ascertain/shorten the area of dispute and pinpoint the points required to be determined by the court, so that no party at the trial is taken by surprise. The court referred following decisions:

  • Sayad Muhammad. v. Fatteh Muhammad20 (1894-95) 22 Ind. App. 4 (PC)
  • Raja Bommadevara Venkata v. Raja Bommadevara Bhashya, (1902) 29 Ind. App. 76 (PC);
  • Siddik Mohd. Shah v. Saran, AIR 1930 PC 57;
  • Sita Ram v. Radha Bai, AIR 1968 SC 535;
  • Gappulal v. Thakurji Shriji Dwarkadheeshji, AIR 1969 SC 1291; and
  • Biswanath Agarwalla v. Sabitri Bera, (2009) 15 SCC 693.

With reference to the following decisions, in Kalyan Singh Chouhan v. CP Joshi, AIR 2011 SC 1127,   it was also pointed out that there may be exceptional cases wherein the parties proceeded to trial fully knowing the rival case and led all the evidence not only in support of their contentions but in refutation thereof by the other side; and in such an eventuality, it would not be permissible for a party to submit that the proceedings stood vitiated. The decisions were the following:

  • Nagubai Ammal v. B. Shama Rao, AIR 1956 SC 593;
  • Nedunuri Kameswaramma v. Sampati Subba Rao, AIR 1963 SC 884;
  • Kunju Kesavan v. M.M. Philip, AIR 1964 SC 164;
  •  Kali Prasad Agarwalla v. M/s. Bharat Coking Coal Ltd., AIR 1989 SC 1530;
  • Sayed Akhtar v. Abdul Ahad, (2003) (7) SCC 52; and
  • Bhuwan Singh v. Oriental Insurance Co., AIR 2009 SC 2177.

Objectionable part of the Speech ought to have Pleaded

In Balan v. Manoharan Master, 1988 (1) KLT 717, where a candidate said to have ‘consented’ a ‘corrupt practice’ in his speech, it was held that the objectionable part of the speech ought to have pleaded.

No pleading in respect of the ‘remaining 4 tendered votes’

The Supreme Court observed in Kalyan Singh Chouhan v. CP Joshi, AIR 2011 SC 1127,  that during the trial of an election petition, it was not permissible for the court to permit a party to seek a roving enquiry; and that the party must plead the material fact and adduce evidence to substantiate the same. In this case the issue raised was pertaining to 6 improperly received votes mentioned in the election petition. Though there was no pleading  either in the election petition or in the written statement a new matter in respect of the ‘remaining 4 tendered votes’ came up. The Supreme Court held that before the court permitted the recounting, the following conditions were to be satisfied:

  • “(i) The Court must be satisfied that a prima facie case is established;
  • (ii) The material facts and full particulars have been pleaded stating the irregularities in counting of votes;
  • (iii) A roving and fishing inquiry should not be directed by way of an order to recount the votes;
  • (iv)  An opportunity should be given to file objection; and
  •  (v) Secrecy of the ballot requires to be guarded.

The Court referred following decisions:

  • Dr. Jagjit Singh v. Giani Kartar Singh,  AIR 1966 SC 773;
  • Suresh Prasad Yadav v. Jai Prakash Mishra,  AIR 1975 SC 376;
  • M. Chinnasamy v. K.C. Palanisamy,  AIR 2004 SC 541;
  • Chandrika Prasad Yadav v. State of Bihar, AIR 2004 SC 2036;
  • Tanaji Ramchandra Nimhan v. Swati Vinayak Nimhan,  AIR 2006 SC 1218;
  • Gursewak Singh v. Avtar Singh,   AIR 2006 SC 1791; and
  • Baldev Singh v. Shinder Pal Singh, (2007) 1 SCC 341).”

Instances of Lack of Pleadings on Allegation of Hiring Vehicles

(i) Balwan Singh v. Lakshmi Narain, 1960 (3) SCR 91 : AIR 1960 SC 770 – Allegation of corrupt practice raised, inter alia, was of hiring or procuring vehicles. The date and place of hiring of vehicle and the names of the persons between whom the contract of hiring was settled were set out. Particulars that the hired vehicle was used for conveying voters to or from the polling station were also set out. Full particulars as to contract of hiring vehicles, as distinguished from the fact of hiring, had not been set out. Majority observed that the Section 83 was duly complied with.

(ii)  RM Seshadri v. G. Vasantha Pai, 1969 (1) SCC 27– Allegation was as to employing cars, hired and procured for the conveyance of the voters to the polling booths. It was contended by the returned candidate that the allegation was vague. Rejecting the contention, the Court held that it had been sufficiently pleaded and proved that cars were in fact used. In the opinion of the Court, “the rest were matters of evidence which did not require to be pleaded and that plea could always be supported by evidence to show the source from where the cars were obtained, who hired or procured them and who used them for the conveyance of voters.”

No Amendment of pleading After the Time Limit

In VS Achuthanandan v. PJ Francis, AIR 1999 SC 2044, it was held that material facts are preliminary facts which must be proved at the trial by a party to establish existence of a cause of action; and that no amendment of the pleading is permissible to introduce such material facts after the time limit prescribed for filing the election petition, the absence of ‘material particulars’ can be cured at a later stage by an appropriate amendment.

The Grounds for Directing a Recount of Votes

In Suresh Prasad Yadav v. Jai Prakash Mishra, (1975) 4 SCC 822, it is held as under:

  • “ The Court would be justified in ordering a recount of the ballot papers only where:
  • (1) the election-petition contains an adequate statement of all the material facts on which the allegations of irregularity or illegality in counting are founded;
  • (2) on the basis of evidence adduced such allegations are prima facie established, affording a good ground for believing that there has been a mistake in counting; and
  • (3) the court trying the petition is prima facie satisfied that the making of such an order is imperatively necessary to decide the dispute and to do complete and effectual justice between the parties.”

In Chandrika Prasad Yadav v. State of Bihar, (2004) 6 SCC 331, it is pointed out that it was well-settled that an order of recounting of votes could be passed when the following conditions are fulfilled:

  • “(i) A prima facie case;
  • (ii) Pleading of material facts stating irregularities in counting of votes;
  • (iii) A roving and fishing inquiry shall not be made while directing recounting of votes; and
  • (iv) An objection to the said effect has been taken recourse to.
  • The requirement of maintaining the secrecy of ballot papers must also be kept in view before a recounting can be directed. Narrow margin of votes between the returned candidate and the election petitioner by itself would not be sufficient for issuing a direction for recounting.”

Pleadings on the Petition for Recount of Votes

In M. Chinnasamy Vs. K.C. Palanisamy, 2003 (10) SCALE 103, our Apex Court held that it was obligatory on the part of the Election Tribunal to arrive at a positive finding that a prima facie case had been made out for issuing a direction for recounting holding. It is held as under:

  • “Apart from the clear legal position as laid down in several decisions, as noticed hereinbefore, there cannot be any doubt or dispute that only because a recounting has been directed, it would be held to be sacrosanct to the effect that although in a given case the court may find such evidence to be at variance with the pleadings, the same must be taken into consideration. It is now well-settled principle of law that evidence adduced beyond the pleadings would not be admissible nor any evidence can be permitted to be adduced which is at variance with the pleadings. The court at a later stage of the trial as also the appellate court having regard to the rule of pleadings would be entitled to reject the evidence wherefor there does not exist any pleading.” (Quoted to in: Chandrika Prasad Yadav v. State of Bihar, (2004) 6 SCC 331)

Degree of proof for recounting of votes – very high standard

The degree of standard of proof required for recounting of votes is very high. It is held in M. Chinnasamy v. K.C. Palanisamy, (2003) 10 SCALE 103, as under:

  • “The requirement of laying foundation in the pleadings must also be considered having regard to the fact that the onus to prove the allegations was on the election petitioner. The degree of proof for issuing a direction of recounting of votes must be of a very high standard and is required to be discharged. [See: Mahender Pratap vs. Krishan Pal and Others – (2003) 1 SCC 390]” (Quoted to in: Chandrika Prasad Yadav v. State of Bihar, 2004 (6) SCC 331).

Evidence led, without objections – Court could evaluate Worth of that evidence,

In Gajanan Krishnaji Bapat v. Dattaji Raghobaji Meghe, AIR 1995 SC 2284, 1995 SCC (5) 347, it is held as under:

  • “Of course, since evidence was allowed to be led, though beyond the pleadings without any objections from the opposite side, the court could have evaluated and analysed the same to determine the worth of that evidence.”

Foot Notes:

  1. Bishundeo Narain v. Seogeni Rai, AIR 1951 SC 280; Ladli Prashad Jaiswal v. Karnal Distillery, Co., AIR 1963 SC 1279; Subhash Chandra Das v. Ganga Parsad Das, AIR 1967 SC 878; Varanasaya Sanskrit Vishwavidalaya v. Dr. Raj Kishore Tripathi, AIR 1977 SC 615; Jai Parkash Power Ventures v. State of HP, ILR 2017-6 HP 210.
  2. Bishundeo Narain v. Seogeni Rai, AIR 1951 SC 280;  Raja Ram v. Jai Prakash Singh, AIR 2019 SC 4374; Ladli Prasad Jaiswal v. Karnal Distillery, Co., AIR 1963 SC 1279.

Read in this Cluster:

Book No, 1 – Civil Procedure Code

Power of attorney

Title, ownership and Possession

Principles and Procedure

Land LawsTransfer of Property Act

Evidence Act – General

Contract Act

Easement

Stamp Act

Will

Book No. 2: A Handbook on Constitutional Issues

Book No. 3: Common Law of CLUBS and SOCIETIES in India

Book No. 4: Common Law of TRUSTS in India

30 Years Old Documents- No ‘Absolute’ Presumption of Truth of Contents, under Sec. 90 Evidence Act

Jojy George Koduvath.

Abstract

  • Under Sec. 90, Not Truth of Contents, but, only presumption of Genuineness of a document (i.e., existence or handwriting), is drawn. Therefore, besides TRUTH, the contents of the documents also have to be proved by cogent evidence.
    • Indian Evidence Act and other procedural laws do not expressly say anything as to “TRUTH of contents” of documents. In proper cases court can presume truth.
    • No doubt, under Sec. 114, TRUTH can be presumed, directly, in proper cases, in their peculiar ensuring facts (regard being had to the common course of natural events, human conduct and public and private business, in their relation to the facts of the particular case).
    • That is, if the document is a public document an “added presumption” (as to correctness) under Section 114(e) is available -Iqbal Basith and others v. N Subbalakshmi, (2021) 2 SCC 718.
  • Sec. 90 CPC, basically, speaks about two things – as regards 30-year-documents:
    • 1. A document purports to be in the handwriting of any particular person is presumed to be in his handwriting.
    • 2. A document purports to be executed or attested is presumed to be duly executed and attested.
  • The presumption, under Section 90, Evidence Act, as to regularity for documents having more than 30 years of age does not apply to Wills (Unless Sec. 71 Evid. Act can be Invoked).

PART I

PRESUMPTION – ONE OF THE ‘MODES OF PROOF‘ OF DOCUMENTS

A fact, otherwise doubtful, may be substantiated from certain other facts. It is presumption.

Besides the direct evidence, modes of proof of (contents of) documents include the following:

  • Invoking (specific) presumptions under Sec. 79 to 90A.
  • Invoking Presumptions (general) on probability or inferences under Sec. 114.
  • Relying on Circumstantial evidence – on probability and inferences (Sec. 114).

Proof Invoking Presumption

Presumption being an inference as to the existence of one fact from the proof of some other proved facts, the Court exercises a process of reasoning and reach a logical conclusion as the most probable consequence (See: St. of West Bengal v. Mir Mohammad Omar, AIR 2000 SC 2988).

Section 67, Evid. Act requires – facts to be proved; It includes invocation of ‘Presumption

In Sumathi Amma v. Kunjuleskhmi Amma (1964 Ker LT 945) it was observed that Section 67, Evidence Act only says that facts have to be proved, and, unlike Section 68, does not prescribe any particular mode of proof. The facts required to be proved under Section 67 can be proved by any kind of evidence, and there is nothing in the section to indicate that the evidence furnished by the registration certificate by virtue of Sub-section (2) of Section 60 of the Registration Act and by the presumption in Illustration (e) of Section 114 of the Evidence Act, is to be excluded.’

Read Blog: Presumptions on Documents and Truth of its Contents

General and Specific instances of Presumptions in the Evidence Act

Sec. 114 of the Evidence Act allows the Court to presume the existence of any fact which it thinks likely to have happened, regard being had to the common course of natural events, human conduct and public and private business, in their relation to the facts of the particular case.

Sec. 79 to 90A of the Evidence Act speaks as to specific instances of invoking presumptions.

Presumption of Truth is taken ‘on something Proved‘, or Presumed

In Izhar Ahmad Khan v. Union of India, AIR 1962 SC 1052, the Supreme Court definitely found that presumption of truth is taken ‘on something proved or taken for granted ‘. It is observed in Izhar Ahmad Khan v. Union of India, AIR 1962 SC 1052, that the term ‘presumption’ in its largest and most comprehensive signification, may be defined to bear inference, affirmative or disaffirmative, of the truth or falsehood of a doubtful fact or proposition drawn by a process of probable reasoning from something proved or taken for granted.

Is “To Presume” Means “ To Take As Proved Until Disproved”?

Meaning of the word “presume” is explored in State of Maharashtra v. Som Nath Thapa, AIR 1996 SC 1744, and stated as under:

  • “In Black’s Law Dictionary it has been defined to mean “to believe or accept upon probable evidence”.
  • In Shorter Oxford English Dictionary it has been mentioned that in law “presume” means “to take as proved until evidence to the contrary is forthcoming”.
  • Stroud’s Legal Dictionary has quoted in this context a certain judgement according to which “A presumption is a probable consequence drawn from facts (either certain or proved by direct testimony) as to the truth of a fact alleged”.
  • In Law Lexicon by P. Ramanath Aiyer the same quotation finds place at page 1007 of 1987 edition.”
  •  (See also: Ramachandran v. State of Kerala, 2009 Cr.LJ 168.)

Is presumption under the Indian Evidence Act, clinches to “Truth”?

Not always.

  • But, mark – When presumption can be invoked without blemishes (on the face of it), the onus would be on a person who challenges such presumption – See: Prem Singh v. Birbal , (2006) 5 SCC 353)

Two views forthcome:

  • First, Presumption is an inference of a fact. This, by itself (invariably) embraces ‘truth’.
  • Second (and more cogent), under Sec. 114 of the Evidence Act, court may presume the existence of any fact. The inference, in most cases, will be the subsistence of a fact, like existence of a document or its authorship (rather than its truth). In proper cases, a further presumption could be added – so that the ‘truth’ may also be deduced (Eg. regularity of official acts, sale under a registered sale deed).

The Indian Evidence Act does not expressly correlate “truth” or “correctness” with ‘presumption’. In law, presumption is a probable consequence drawn from facts proved. By invoking presumption, existence (or non existence) of a fact, otherwise doubtful, is inferred from certain other proved facts. The Court exercises a process of reasoning and reach a logical conclusion as the most probable position. Any fact’ may (or may not) include ‘truth’.

In St. of West Bengal Vs. Mir Mohammad Omar, AIR 2000 SC 2988, it is held by our Apex Court as under:

  • “Presumption of fact is an inference as to the existence of one fact from the existence of some other facts, unless the truth of such inference is disproved. Presumption of fact is a rule in law of evidence that a fact otherwise doubtful may be inferred from certain other proved facts. When inferring the existence of a fact from other set of proved facts, the Court exercises a process of reasoning and reach a logical conclusion as the most probable position. The above principle has gained legislative recognition in India when Section 114 is incorporated in the Evidence Act. It empowers the Court to presume the existence of any fact which it thinks likely to have happened. In that process Court shall have regard to the common course of natural events, human conduct etc. in relation to the facts of the case.”

It is held as under in Mobarik Ali Ahmed Vs. State of Bombay, AIR 1957 SC 857, as under:

  • “The proof of the genuineness of a document is proof of the authorship of the document and is proof of a fact like that of any other fact. The evidence relating thereto may be direct or circumstantial. It may consist of direct evidence of a person who saw the document being written or the signature being affixed. It may be proof of the handwriting of the contents, or of the signature, by one of the modes provided in Ss. 45 and 47 of the Indian Evidence Act. It may also be proved by internal evidence afforded by the contents of the document. This last mode of proof by the contents may be of considerable value where the disputed document purports to be a link in a chain of correspondence, some links in which are proved to the satisfaction of the Court. In such a situation the person who is the recipient of the document, be it either a letter or a telegram, would be in a reasonably good position both with reference to his prior knowledge of the writing or the signature of the alleged sender limited though it may be, as also his knowledge of the subject-matter of the chain of correspondence, to speak to its authorship.”

Presumptions on documents arise in the following cases:

  1. Presumption on documents made in the course of business.
  2. Presumption on Regularity of official and judicial acts.
  3. Presumption on Registered Documents.
  4. Presumption on statements of dead person or who is not found etc.
  5. Presumption on certified copies of foreign judicial records.
  6. Presumption on certain books, maps and charts.
  7. Presumption on telegraphic messages.
  8. Presumption as to electronic messages.
  9. Presumption on 90 years old documents.
  10. Presumption on electronic records five years old
  11. Presumption on undue influence
    • Presumption on Specific documents:
      • a. Wound Certificates, Post-Mortem Report etc.
      • b. Certificate, prepared on the basis of other documents.
      • c. Commission Report in an earlier case
      • d.  Deposition in an earlier case

PART II

SEC. 90 EVIDENCE ACT – 30 YEARS’ OLD DOCUMENTS

Sec. 90 Evidence Act reads as under:

  • “90. Presumption as to documents thirty years old:
  • Where any document, purporting or proved to be thirty years old, is produced from any custody which the Court in the particular case considers proper, the Court may presume that the signature and every other part of such document, which purports to be in the handwriting of any particular person, is in that person’s handwriting, and, in the case of a document executed or attested, that it was duly executed and attested by the persons by whom it purports to be executed and attested.
  • Explanation.—Documents are said to be in proper custody if they are in the place in which, and under the care of the person with whom, they would naturally be; but no custody is improper if it is proved to have had a legitimate origin, or if the circumstances of the particular case are such as to render such an origin probable.”
  • This Explanation applies also to section 81. 

Sec. 90 speaks about two things:

  • 1. a document purports to be in the handwriting of any particular person
  • 2. a document purports to be executed or attested

The presumption spoken of in Sec. 90 is the following:

  • handwriting – in that person’s handwriting
  • executed or attested – duly executed and attested.

It was a matter of controversy whether truth or genuineness can be attached to the 30-year-old documents (though not specifically stated in Sec. 90).

Sec. 90 – Contents Not Stand Proved; TRUTH Not Presumed

Under Sec. 90, Not Truth of Contents, but, only presumption of Genuineness of a document (ie. existence or handwriting), is drawn. Therefore, besides TRUTH, the Contents of the documents also have to be proved by convincing evidence.

Genuineness (Not Truth of Contents) attached to 30-year-old Documents

In Lakhi Baruah v. Padma Kanta Kalita, (1996) 8 SCC 357, AIR 1996 SC 1253, with regard to admissibility in evidence of thirty years old documents produced from proper custody, it was observed as under:

  • “15. Section 90 of the Evidence Act, 1872 is founded on necessity and convenience because it is extremely difficult and sometimes not possible to lead evidence to prove handwriting, signature  or execution of old documents after lapse of thirty years. In order to obviate such difficulties or improbabilities to prove execution of an old document, Section 90 has been incorporated in the Evidence Act, 1872 which does away with the strict rule of proof of private documents. Presumption of genuineness may be raised if the documents in question is produced from proper custody. It is, however, the discretion of the court to accept the presumption flowing from Section 90. There is, however, no manner of doubt that judicial discretion under Section 90 should not be exercised arbitrarily and not being informed by reasons.”

30-year-old Copy – No presumption of Due Execution

In Lakhi Baruah v. Padma Kanta Kalita, (1996) 8 SCC 357, AIR 1996 SC 1253, with regard to admissibility in evidence of thirty years old documents produced from proper custody, it was observed as under:

  • 16. So far as applicability of presumption arising from Section 90 of the Evidence Act in respect of copy of the old document is concerned, the earliest decision of the Indian Court was made in 1880 in Khetter vs. Khetter Paul (ILR 5 Calcutta 886). Later on, in the decisions of various High Court the presumption under Section 90 was also made applicable to the certified copy. The Privy Council, upon review of the authorities, however, did not accept the decision rendered in Khetter and other decisions of the High Court, where the presumption was attached also to copies, as correct. It was indicated that in view of the clear language of section 90 the production of the particular document would be necessary for applying the statutory presumption under Section 90. If the document produced was a copy admitted under Section 65 as secondary evidence and it was produced from proper custody and was over thirty years old, then the signature authenticating the copy might be presumed to be genuine: but production of the copy was not sufficient to justify the presumption of due execution of the original under Section 90. In this connection, reference may be made to the decisions in Seetnayva Vs. Subramanya (56 IA 146 : AIR 1929 PO 115) and Basant VS. Brijri (AIR 1935 PO 115). In view of these Privy Council decision, disproving the applicability of presumption under Section 90 to the copy or the certified copy of an old document, in the subsequent decisions of the High Courts, it has been consistently held by different High Courts that production of a copy or a certified copy does not raise the presumption under Section 90. The position since the aforesaid Privy Council decisions being followed by later decisions of different High Courts is that presumption under Section 90 does not apply to a copy or a certified copy even though thirty years old: but if a foundation is laid for the admission of secondary evidence under Section 65 of the Evidence Act by proof of loss or destruction of the original and the copy which is thirty years old is produced from proper custody, then only the signature authenticating the copy may under Section 90 be presumed to be genuine.
  • See also:
  • Tilak Chand Kureel v. Bhim Raj (1969) 3 SCC 367
  • Harihar Prasad Singh v. Mst of Munshi Nath Prasada, 1956 SCR I

Photocopy of 30 Years Old Official DocumentsMarked without ObjectionRegularity can be Presumed

Quoting Lakhi Baruah v. Padma Kanta, it is elucidated in Iqbal Basith v. N Subbalakshmi, (2021) 2 SCC 718, as regards official/public document, marked without objection, presumption under Section 114(e) of the Indian Evidence Act (there shall be a that all official acts have been regularly performed) can be invoked, over and above the presumption under Ser. 90. It is held as under:

  • “The appellants produced photocopies of all other resolutions, government orders and sale deed in favour of their vendor OA Majid Khan by the Municipality. The failure to produce the originals or certified copies of other documents was properly explained as being untraceable after the death of the brother of P.W.1 who looked after property matters. The attempt to procure certified copies from the municipality was also unsuccessful as they were informed that the original files were not traceable. The photocopies were marked as exhibits without objection. The respondents never questioned the genuineness of the same. Despite the aforesaid, and the fact that these documents were more than 30 years old, were produced from the proper custody of the appellants along with an explanation for non­production of the originals, they were rejected without any valid reason holding that there could be no presumption that documents executed by a public authority had been issued in proper exercise of statutory powers. This finding in our opinion is clearly perverse in view of Section 114(e) of the Indian Evidence Act 1872, which provides that there shall be a presumption that all official acts have been regularly performed. The onus lies on the person who disputes the same to prove otherwise.”

Title is to be decided on the basis of other evidence, Not on Recital of 1945 Deed

The presumption as to  ‘regularity‘ is confined to ‘official acts‘, as held in Iqbal Basith  v. N Subbalakshmi (supra). 

In Kuldeep Sharma v. Satyendra Kumar Sharma, AIR 2001 All. 366, it is held as under:  

  • “The recital of the gift deed of the year 1945 in favour of Sheo Prasad, even if taken to be admissible, does not have much evidentiary value. The executant of the document is required to disclose the title of the property, but if there is dispute, the title is to be decided on the basis of other evidence and not on the basis of the recitals in the deed itself. Therefore, the Courts below rightly rejected the contents of the gift deed. Learned counsel for the appellants cannot take shelter of the recitals of the gift deed of the year, 1945 to argue that Smt. Yashoda Devi was the owner of the property as mentioned in the same.

Section 90: Authenticity of RecitalsNot Presumed Correct

The Supreme Court, in Gangamma v. Shivalingaiah, (2005) 9 SCC 359, observed as under:  

  • Section 90 of the Evidence Act no where provides that in terms thereof the authenticity of the recitals contained in any document is presumed to be correct. …… We may furthermore notice that even if a formal execution of a document is proved, the same by itself cannot lead to a presumption that the recitals contained therein are also correct. The mere execution of a document, in other words, does not lead to the conclusion that the recitals made therein are correct, and subject to the statutory provisions contained in Sections 91 and 92 of the Evidence Act, it is open to the parties to raise a plea contra thereto.”  

In Union of India v. Ibrahim Uddin, (2012) 8 SCC 148, it was held as under:

  • “Presumption under Section 90 of the Evidence Act in respect of 30 years’ old document coming from proper custody relates to the signature, execution and attestation of a document i.e. to its genuineness but it does not give rise to presumption of correctness of every statement contained in it. The contents of the document are true or it had been acted upon have to be proved like any other fact.

In Jhasketan Bhoi V. Krushna Bhoi, ILR 2018-2 Cuttack (Orissa) 440. It was held as under:

  • “It is no-doubt clear that Section 90 of the Indian Evidence Act if any document is produced from proper custody which is executed 30 years back then the document can be proved by production from proper custody. But that does not mean that the contents of the documents are proved. The contents of the document have to be proved by cogent evidence.”

After reading Sec. 90, the High Court proceeded as under:

  • “When a document is purportedly to be more than 30 years old, if it be produced from what the Court considers to be proper custody, it may be presumed
    • that the signature and every other part of such document, which purports to be in the handwriting of any particular person, is in that person’s handwriting, and
    • that it was duly executed and attested by the person by whom it purports to be executed and attested.
  • Thirty year old document, produced from proper custody, not looking ex facie suspicious, presumption could be drawn in favour of proper execution of the document. It is not necessary that the signatures of the attesting witnesses or of the scribe be proved; if everything was proved there would be no need to presume anything. There can, however, be no presumption as to
    • who is the person, who executed the document was and
    • what authority he had to execute the document, and
    • whether he had the requisite authority, or
    • whether the contents of the document are true.
  • In other words, the execution and attestation of the document is presumed, but the contents have to be proved by some way or other.”

It appears that the correct view on Sec. 90 had been expressed in Kunhamina Umma v. Special Tahsildar, AIR 1977 Ker 41, wherein it was observed that this was a matter with the discretion of the court. It also referred to Sec. 114 of the Evidence act. It is held as under:

  • “10. The true scope of Sec. 90 of the Evidence Act is that the section does away with the strict rules of proof which are enforced in the case of private documents, by giving rise to a presumption of genuineness with regard to documents reaching a certain age. If private documents not less than thirty years old are produced from proper custody, and are on their face free from suspicion, the court may presume that they have been signed or written by the person whose signatures they bear or in whose handwriting they purport to be, and that they have been duly attested and executed, if they purport so to be. In other words, documents thirty years old prove themselves–see Sirkar on Evidence 12th Edn. page 727.
  • The section deals with the admissibility of such old documents without proof in the usual manner, but the credit to be given to them depends on the discretion of the court exercised in a judicial manner and the particular circumstances of each case. No doubt, the presumption is permissive and according to the circumstances of each case the court may or may not raise it. It has also been held in certain cases that a sound disposing mind can be presumed under Sec. 90, This is so ‘because of the expression ‘duly executed’in the section. The word duly has to be taken to mean execution by a person legally competent to execute the document–see (1) Kottayya v. Karancheti– AIR 1930 Mad 744 (2) Munnalal v. Kshibai — AIR 1947 PC 15; (3) Venkatarama v Bhaskar Rao — AIR 1962 Andh Pra 29.
  • This presumption is fortified by Sec. 114 Evidence Act. Again it may be made clear that it is in the discretion of the court to draw the presumption or not.”

Under Sec. 114, REGULARITY Can be Presumed, DIRECTLY

No doubt, under Sec. 114, REGULARITY can be presumed, directly, in proper cases, in their peculiar facts (regard being had to the common course of natural events, human conduct and public and private business, in their relation to the facts of the particular case).

READ BLOG: Proof of Documents & Objections To Admissibility – How & When?

Read Blog: Marking Documents Without Objection – Do Contents Proved

“Proper Custody”

As regards the ‘proper custody’ in Sec. 90 Evidence Act it is observed in Cheedella Padmavathi v. Cheedella Lakshminarasimha Rao, 2015(5) ALT 634, as under:

  • “The proper custody is in the custody of a person, who might be reasonably and naturally be expected to have possession of them.” 

In Rangaswami v. T.V. Krishnan, 2011-1 CC 832, it is observed that ‘proper custody means custody of an individual connected with deed and its possession does not excite any fraud or suspicion’.

No Presumption to 30 Years Old Will

The presumption, under Section 90, Evidence Act, as to regularity for documents having more than 30 years of age does not apply to Wills.

  • Wills have to be proved in terms of Sections 63(c) of the Succession Act, 1925 (the will shall be attested by two or more witnesses), and Section 68 of the Evidence Act, 1872 (one attesting witness at least has been called for the purpose of proving its execution, if there be an attesting witness alive). Section 69 of the Evidence Act directs – if no such attesting witness can be found – to prove (i) the attestation of one attesting witness at least is in his handwriting and also (ii) the signature of the testator. Section 71 permits – if the attesting witness denies or does not recollect the execution of the document – to prove the execution of the will by other evidence.

Read Blog: How to Prove a Will, in Court? When Presumptions (alone) will be enough for Proof of a Will?

In M.B. Ramesh v. K.M. Veeraje Urs, (2013) 7 SCC 490, it is held as under:

  • “.. . As held by this Court in Bharpur Singh v. Shamsher Singh reported in 2009 (3) SCC 687, a presumption regarding documents 30 years old does not apply to a will. A will has to be proved in terms of Section 63(c) of the Succession Act read with Section 68 of the Evidence Act. That takes us to the crucial issue involved in the present case, viz. with respect to the validity and proving of the concerned will. A Will, has to be executed in the manner required by Section 63 of the Succession Act. Section 68 of the Evidence Act requires the will to be proved by examining at least one attesting witness. Section 71 of the Evidence Act is another connected section “which is permissive and an enabling section permitting a party to lead other evidence in certain circumstances”, as observed by this Court in paragraph 11 of Janki Narayan Bhoir v. Narayan Namdeo Kadam reported in 2003 (2) SCC 91 and in a way reduces the rigour of the mandatory provision of Section 68. As held in that judgment Section 71 is meant to lend assistance and come to the rescue of a party who had done his best, but would otherwise be let down if other means of proving due execution by other evidence are not permitted.” Quoted in: Ashutosh Samanta v. S M. Ranjan Bala Dasi, 2023 SCC OnLine SC 255.

Evidence in Old Transaction – Vigor in RECENT TRANSACTIONS could Not be EXPECTED

In Muthialpet Benefit Fund Ltd.  v. V.  Devarajulu Chetty, AIR 1955 Mad 455, it is held as under:

  • “7. To my mind, neither of the first two points is convincing because the first is based on the rather over-optimistic and facile profession of faith made in every minors suit that he the minor is going to win and to which the statistics of our Courts do not unfortunately lend any support and especially so in this case and in the circumstances set out above, which make out prima facie that the mortgagee public institution made proper and bona fide enquiry as to the existence of necessity and did all that was reasonable to satisfy itself as to the existence of such necessity. In such a case even if there was no necessity in fact or even if the money borrowed was not applied to meet the necessity, the alienation will be upheld. The recitals of necessity in the deed are admissible in evidence as admissions of the Manager or father and also amount to representation of necessity though in the case of RECENT TRANSACTIONS evidence aliunde** would be NORMALLY EXPECTED. These elementary propositions require no buttressing by citations (See Mulla, Hindu Law, Edn.10, p.285; Raghavachari: Hindu Law, Edn.3, p.335 and following; Mayne: Hindu Law, Edn.11, Re-print pp.474-475). Secondly, it is in the best interest of the mortgagors themselves to prevent the deterioration of the value of the corpus and market it into cash and keep the sale proceeds in Court pending and abiding the result of the suit.”
  • (**from other sources)

In Jagna Sanyasiah v.  Mycherla Peda Atchanna Naidu, AIR 1921 Mad 624, it is held as under:

  • “5. The respondents’ contention in their memorandum of objections would, in my opinion, have to be allowed as the passing of consideration for a document which is more than 30 years old and which was ever questioned till this suits was brought should be taken as proved even if the direct evidence is not as strong as might be naturally expected in respect of recent transactions.”

Court to invoke Presumptions Judiciously

Discretionary presumptions—those which the court may invoke under provisions like Section 114 of the Evidence Act—should be exercised only after considering the relevant circumstances and providing a reasoned justification. A court cannot—and should not—ignore available presumptions without offering proper judicial rationale.

  • “Reason is the heartbeat of every conclusion, and without the same it becomes lifeless”: (Arijit Pasayat J.) AIR 2008 SC 1589, 2008 (15) SCC 711, and Raj Kishore Jha v. State of Bihar, 2003 (7) Supreme 152.
  • See also: State of U.P. v. Battan,2001 (10) SCC 607;  State of Maharashtra v. Vithal Rao Pritirao Chawan, AIR 1982 SC 1215; Jawahar Lal Singh v. Naresh Singh, 1987 (2) SCC 222.

In Rathish Babu Unnikrishnan v. State (Govt.  of NCT of Delhi), 2023 CrLJ 311; 2022-4 JT 477; 2022-6 Scale 794; 2022-4 SCR 989, it is held as under:

  • “In any case, when there is legal presumption, it would not be judicious for the quashing Court to carry out a detailed enquiry on the facts alleged, without first permitting the trial Court to evaluate the evidence of the parties. The quashing Court should not take upon itself, the burden of separating the wheat from the chaff where facts are contested. To say it differently, the quashing proceedings must not become an expedition into the merits of factual dispute, so as to conclusively vindicate either the complainant or the defence.”

In Nepurjan Bibi Choudhury v. Musabbir Ali Choudhury, AIR 2018 Gau 151, it is emphasised as under:

  •  “Court needs to exercise the discretion judiciously while taking presumption under Section 90 of the Evidence Act, keeping in mind the underlying object of the provision, being the necessity and convenience and also the precondition required for taking a presumption. Section 90 of the Evidence Act provides that before taking a presumption, two basic ingredients should be there, namely the document sought to be proved must be of 30 years old and it must be produced from proper custody.”

Loose and Unfettered Discretion is a Dangerous Weapon

In Naresh Chandra Mital v. Bishamber Nath Chopra, 1966-2 DLT 352, it is observed as under:

  • “The Court has in exercising its discretion to keep in view the desirability of facilitating speedy decisions of suits upon bills of exchange, promissory notes and hundis and also to keep in view the drastic nature of the provisions contained in Rules 2 and 3 of Order 37. The presumption of consideration in the case of negotiable instruments on the one hand and the plea of the defendant and the attending circumstances tending to discount such presumption have to be considered and weighed judiciously by the Court. In otherwords, the Court has to exercise judicial discretion, keeping in view the basic dictates of justice when determining the question whether or not to permit the defendant to contest the suit and if so, whether unconditionally or on terms and what terms. The idea of discretion, which is always to be exercised in a disciplined and responsible manner, really represents a compromise between the idea that those who possess power should be trusted with free hand and not tied down to narrow and rigid groves and the competing notion that loose and unfettered discretion is a dangerous weapon to entrust to any one including Courts.”

Similar Articles:


Read in this Cluster:

Book No, 1 – Civil Procedure Code

Power of attorney

Title, ownership and Possession

Principles and Procedure

Land LawsTransfer of Property Act

Evidence Act – General

Contract Act

Easement

Stamp Act

Will

Book No. 2: A Handbook on Constitutional Issues

Book No. 3: Common Law of CLUBS and SOCIETIES in India

Book No. 4: Common Law of TRUSTS in India

Powers and Duties of Commissioners to Make Local Investigations, Under CPC

Saji Koduvath, Advocate, Kottayam.

Key takeaways

  • Commission for local investigation is appointed to elucidate matters in dispute.
  • A commissioner has the duty to report matters that are relevant in the suit – even if they are not specifically put to him (to ascertain).
  • Opinion(evidence) of a commissioner (Eg. Whether a building is fit for ‘residence’) may not be relevant.
  • A commissioner cannot be asked to find out the physical possession of a property.
  • A Commission report will be ‘evidence’ even if it is not marked or exhibited.
  • Parties should prove their case by themselves by letting in legally acceptable evidence and the report of the Commissioner can only aid the court in evaluating the evidence.
  • It is not a condition precedent to set aside the Commission Report – where the (earlier) report suffered only some “deficiency or omission ”.
  • When a commission report is set aside, the court is bound to remit it back to the Commissioner for getting a fresh report. The parties should not be pushed to suffer for the lapse or mistake of the commissioner.
  • If the Ex parte commission did not give notice to the defendant, the report cannot be accepted as ‘substantive’ evidence; it can be used only as a corroborative piece when the commissioner is examined in court.
  • There is no ‘provision’ to raise “objection to a commission report on ‘local inspection’. The dissatisfied party has to challenge the evidence by cross-examination of the commissioner.
  • Surveyor-plan Attached to Commission Report will not be ‘ipso facto’ Evidence. If the commissioner could not vouchsafe its veracity, the surveyor should be examined.

Power of Courts to Issue Commissions

Courts derive power to issue Commissions from Sec. 75 CPC. It reads as under:

Sec. 75. Power of Court to Issue Commissions

  • Subject to such conditions and limitations as may be prescribed, the court may issue a commission-
    • (a) to examine any person;
    • (b) to make a local investigation;
    • (c) to examine or adjust accounts; or
    • (d) to make a partition;
    • (e) to hold a scientific, technical, or expert investigation;
    • (f) to conduct sale of property which is subject to speedy and natural decay and which is in the custody of the Court pending the determination of the suit;
    • (g) to perform any ministerial act.

Commissions to Make Local Investigations

Order 26 rules 9 and 10 deal with appointment of Commissions to make local investigations. They read as under:

O 26 r 9. Commissions to make local investigations-

  • In any suit in which the Court deems a local investigation to be requisite or proper for the purpose of elucidating any matter in dispute, or of ascertaining the market-value of any property, or the amount of any mesne profits or damages or annual net profits, the Court may issue a commission to such person as it thinks fit directing him to make such investigation and to report thereon to the Court:
  • Provided that, where the State Government has made rules as to the persons to whom such commission shall be issued, the Court shall be bound by such rules.

O 26 r 10. Procedure of Commissioner-

  • (1) The Commissioner, after such local inspection as he deems necessary and after reducing to writing the evidence taken by him, shall return such evidence, together with his report in writing signed by him, to the Court.
  • (2) Report and deposition to be evidence in suit.
  • Commissioner may be examined in person-
  • The report of the Commissioner and the evidence taken by him (but not the evidence without the report) shall be evidence in the suit and shall form part of the record; but the Court or, with the permission of the Court, any of the parties to suit may examine the Commissioner personally in open Court touching any part of the matters referred to him or mentioned in his report, or as to his report, or as to the manner in which he has made the investigation.
  • (3) Where the Court is for any reason dissatisfied with the proceedings of the Commissioner, it may direct such further inquiry to be made as it shall think fit.

1. At what stage Commission is to be appointed?

  • Any stage; including Appeal.

2. Can an ex-parte commission be ordered?

  • Yes.
  • (Rajbir Kaur v. S Chokasiri, AIR 1988 SC 1845; Maroli Achuthan v. Kunjipathumma, AIR 1968 Ker 28)

3. Who shall be appointed?

  • Such person as the court thinks fit.

4. What is the purpose of appointing a commissioner?

  • A commission is issued when it is requisite or proper in any suit for the purpose of elucidating any matter in dispute, etc.. (Subash Soman v. State of Kerala, 2019 -2 Ker HC 700, 2019 -2 Ker LJ 729)
  • In Bandi Samuel v. Medida Nageswara Rao, 2017 (1) ALT 493 it was pointed out that the object of appointment of a commissioner was not to assist a party to collect evidence where the party can procure the same, and that an Advocate Commissioner was appointed, inter alia, for elucidating any matter in dispute; that is to decide any real controversy between parties.
  • In New Meena Sahkari Awas Samiti Ltd. v. Addl. District Judge, 2016 (6) AWC 5988, referring the opening words in Rule 9, “in any suit in which the court deems a local investigation to be requisite or proper“, it is pointed out that the provisions of Order 26 Rule 9 of CPC makes it abundantly clear that an order of issuing Commission for the purposes of elucidating matters can be passed ‘only and only in case’ it is deemed to be requisite or proper by the court concerned.
  • In the case of Debendranath Nandi v. Natha Bhuiyan, AIR 1973 Ori 240, it is held that the object of local investigation is to obtain evidence which from its peculiar nature can best be had from the spot. (see: New Meena Sahkari Awas Samiti Ltd. v. Addl. District Judge, 2016 (6) AWC 5988).
  • In Haryana Waqf Board v. Shanti Sarup, (2008) 8 SCC 671, it was held that it was appropriate for the lover court to direct the investigation for demarcation of the disputed land by appointing a Local Commissioner under Order 26 Rule 9 of the CPC for the dispute in that case was being in respect of the encroachment of the suit land and  an application was filed under Order 26 Rule 9 of the CPC.
  • In Ushabai Sharadchandra Bannore v. Wasudeo, 2004(2) Mh.LJ 594, it was held that in case of dispute of an encroachment or dimension of a site, the first essential is to get an agreed map and if the parties cannot agree on one, a Commissioner must be appointed to prepare the same; and it was held as under:
    • “In the absence of such a map, the decree is probably meaningless and execution means virtually starting the case overall again.”

5. What does the word Elucidation‘ denote?

  • Make clear by explanation or analysis; and not mere Collection of evidence.
  • In New Meena Sahkari Awas Samiti Ltd. v. Addl. District Judge, 2016 (6) AWC 5988, it is observed that the expression ‘elucidate’ means to make lucid or clear, throw light upon, explain, enlighten.
  • In Lekh Raj vs Muni Lal, AIR 2001 SC 996, it is held as under:  
    • “The question whether the roof was damaged by the landlord or was damaged because of the building being old and dilapidated is a question of fact, proof of it could only be, if at all, through leading evidence and not through a local Commissioner. A local Commissioner could only report the fact of existing condition of the building and not who did it. It was open for him, if appellant so desired for praying to the Court to grant time to lead evidence in this regard. Since court permitted, a local Commissioner to report, so it would have granted the prayers for leading evidence.”

6. Is the Commissioner enjoined with a role to report matters that are relevant in the suit, even if they are not specifically put to him (to ascertain)?

  • Yes; though not explicitly asserted.
  • (i)  O 26 r 10 says –
    • after such local inspection as he deems necessary’;
  • (ii) The Commissioner, in effect, is a ‘projection’ of the Court appointed “for a particular purpose” – Ponnusamy v. Salem Vaiyappamalai Jangamar Sangam, AIR 1986 Mad 33. It is:
    • ‘for the purpose of elucidating any matter in dispute‘.
  • (ii) Order26 rule  16 that deals with the ‘Powers of Commissioners’ it is purposedly stated that the Commissioner may call for and examine documents and other things relevant to thesubject of inquiry“–
    • Any Commissioner appointed under this Order may, unless otherwise directed by the Order of appointment….. (b) call for and examine documents and other things relevant to the subject of inquiry…”
  • (iii) In Retnamma v. Mehaboob, 2013 -3 Civil CC 65 (Kerala) it is held as under:
    • “58. In short, the court shall confirm that commissioner has elucidated all relevant facts which will help the court to take a right decision in the case. “

7. Can a commissioner be deputed for making a fact-finding that amounts to determination of questions that raises in the suit?

  • No.
  • Duty of the court cannot be delegated.
  • (Gopal Chettiar v. PAA Sahula Hameed, 1998 (3) LW 773; Devadoss v. A Duraisingh, 2002 (3) CTC 748). AIR 1935 Mad. 888; Rangayyakanantha v. Govinda Chatr, AIR 1970 Mys 314)

8. Is there ‘provision’ to raise “objection to a commission report on ‘local inspection’?

  • No.
  • But, where an objection is filed by a party, the court cannot ignore it.
  • O26 r10(2) says:
    • ” …. the Court or, with the permission of the Court, any of the parties to suit may examine the Commissioner personally in open Court touching any part of the matters referred to him or mentioned in his report, or as to his report, or as to the manner in which he has made the investigation.
  • There is no (express) provision in O26 r10(2) for making ‘objection to a Commission report for local inspection’ as provided in O26 r 14 – for Partition.
    • (O26 r 14 – as regards Partition – says:  “the Court, after hearing any objections which the parties may make to the report or reports, shall confirm, vary or set aside the same”).
  • Legislative intent is clear from the aforesaid strong indications – (i) the dissatisfied party has to examine the Commissioner personally in open Court under O26 r 10, and (ii) the court has to ‘hear objections’ in O26 r 14. (Jawahar Lal v. Mangu Ram, (1988) 93 Pun LR 139 ; Balbir Dewan vs Naveen Chander, AIR 1989 Punj. 257).
  • Commission report accepted without objection of the parties – parties are not precluded from challenging the evidence by cross-examination or giving other evidence : AIR 1966 Orissa 121.
  • Court is not precluded from examining commissioner even if no objection: 1953 Pat. 133.
  • CR  in another case can be admitted only on examination of the Commissioner: Sannappa  Vs. Anu Aiah – 1995 AIHC 6680.
  • Acceptable legal position:
  • It appears that the acceptable legal position is rendered in Retnamma v. Mehaboob, 2013-3 Civil CC 65 (K Hema, J.), where it is held that the court should go through the report and see whether it was in Order, irrespective of whether any objection was 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. The Kerala High Court held further as under:
    • “60. If any objection is filed to the commission report by any of the parties, the court shall necessarily consider the same and pass appropriate order.
    • 68. …. If there is any merit in the objection raised, it would have been essential that the commission report be remitted with directions to measure the property etc., and file report in which event, there arises no question of examination of the commissioner to elicit any fact reported by him in the report.

9. Apart from ‘evidence’, can an opinion” of commissioner be sought for? (Eg. Whether a building is fit for ‘residence’)

  • No.
  • Because, it will be a matter for the Court-determination.
    • Note: Express provision in O 26 r 12 (Commission for Account-Inspection) to give instructions specifying to report the Commission’s  “opinion” on the point referred. No such provision in O 26 r 9 and 10.

10. Can a commission be appointed to find out the physical possession of a property?

  • No.
  • In Bandi Samuel v. Medida Nageswara Rao, 2017 (1) ALT 493 it is pointed out that the factum of possession of the property in dispute, which is nothing, but fishing of information and not elucidating any matter in dispute.
  • See also: Malaya Gounder v. Palanisamy (1995) 1 MLJ 626,
  • Puttappa v. Ramappa, AIR 1996 Kant 257,
  • Rajendran v. Lilly Ammal alias Nelli Ammal, 1998 (II) CTC 163,
  • Benz Automobiles Private Limited v. Mohanasundaram, 2003 (3) MLJ 391,
  • D. Kuttiyappan v. Meenakshiammal Polytechnic Unit, 2005 (4) CTC 676,
  • Devadoss v. A. Duraisingh, 2002 (3) CTC 748,
  • Parepally Satyanarayana v, Vutukuri Meeneder Goad, 2008 (1) ALT 461;
  • KMA Wahab v. Eswaran, 2008 (3) CTC 597,
  • Ramdas Trimbak v. Bajirao Sanap, 2018-1 MHLJ 866, 2018-5 AIR BomR 57,
  • S. Kalam v. V. Valliammai,  2021-7 Mad LJ 137,
  • K. Sellammal v. M. Valarmathy, 2022, Madras High Court.

In Indore Development Authority v. Manoharlal, 2020-8 SCC 129, AIR  2020 SC 1496, it is observed:

  • “270. The decision in Velaxan Kumar (supra) cannot be said to be laying down the law correctly. The Court considered the photographs also to hold that the possession was not taken. Photographs cannot evidence as to whether possession was taken or not. Drawing of a Panchnama is an accepted mode of taking possession. Even after re-entry, a photograph can be taken; equally, it taken be taken after committing trespass. Such documents cannot prevail over the established mode of proving whether possession is taken, of lands. Photographs can be of little use, much less can they be a proof of possession. A person may re-enter for a short period or only to have photograph. That would not impinge adversely on the proceedings of taking possession by drawing Panchnama, which has been a rarely recognised and settled mode of taking possession.
  • 271. In the decision in Raghbir Singh Sehrawat v. State of Haryana, (2012) 1 SCC 792 the observation made was that it is not possible to take the possession of entire land in a day on which the award was declared, cannot be accepted as laying down the law correctly and same is contrary to a large number of precedents. The decision in Narmada Bachao Andolan v. State of M.P. (2011) 7 SCC 639, is confined to particular facts of the case. The Commissioner was appointed to find out possession on the spot. DVDs and CDs were seen to hold that the landowners were in possession. The District Judge, Indore, recorded the statements of the tenure-holder. We do not approve the method of determining the possession by appointment of Commissioner or by DVDs and CDs as an acceptable mode of proving taking of possession. The drawing of Panchnama contemporaneously is sufficient and it is not open to a court Commissioner to determine the factum of possession within the purview of Order XXVII, Rule 9 CPC. Whether possession has been taken, or not, is not a matter that a court appointed Commissioner cannot opine. However, drawing of Panchnama by itself is enough and is  a proof of the fact that possession has been taken.”

Kerala High Court held in Thomas VY@ Sajimon v. Joseph VY, ILR 2020-3 Ker446,  2020-3 Ker LJ  574, 2020-3 KHC 613, as under:

  • “15. In a suit for permanent prohibitory injunction, the burden is entirely on the plaintiff to bring convincing evidence to show his possession over the plaint schedule property and for so doing, it is not permissible for the plaintiff to invoke Order 26 Rule 9 CPC, which is intended for a different purpose. In a matter relating to the investigation into the disputed question of fact of possession, the power of appointment of Commissioner for local investigation cannot be exercised by the Court to assist the party to collect evidence, where the party can collect evidence by itself. If a party claims that, that party is in possession of the disputed property and if the other party denies the same by filing the written statement, the disputed fact can be adjudicated by the Court after framing of issues and recording the evidence of the parties. So many articles may be found in the building at the time of local inspection by the Commissioner. Even clothes and other articles may be found in the building. The Commissioner has to just make an inventory of the items found in the building. The Commissioner cannot report about the ownership of the articles found in the premises, as the said aspect is a matter for evidence. If at all the Commissioner makes any such report, the Court shall not accept the report, even for primary satisfaction without any other convincing material. If the Advocate Commission is deputed for the purpose of ascertaining the possession of the party over the property, the said aspect can be done only after gathering information from the people in the locality, which amounts to fishing out the evidence or gathering of evidence and hence the same is only hearsay information. The party can even otherwise examine the persons, with whom the Commissioner makes enquiry, before the Court to prove the possession of the person over the property in question. The fishing out of information is to make a local enquiry collecting hearsay materials from the persons gathered there or the like, which is different from collection of materials which he finds at the scene. That apart, if that task is left to be decided by the Advocate Commissioner, any fraudulent litigant can create evidence and with the assistance of the Commissioner, he will be able to prove that he is in possession of the property, which is not the purpose for which Order 26 was enacted. Therefore, it is always advisable not to appoint an Advocate Commissioner, as in the present case, to find out the possession of the property, which has to be decided only from oral and documentary evidence to be adduced by the parties. The High Court of Madras in Mr. D. Kuttiyappan v. Meenakshiammal Polytechnic Unit, (2005) 4 MLJ 592, held that the Advocate Commissioner cannot be appointed to note down the factum of possession or the enjoyment . I respectfully agree with the view of the High Court of Madras in D. Kuttiyappan (Supra). Thus, it is settled law that the power of appointment of Commissioner for local investigation cannot be exercised by the Court to enable any party to collect evidence through the Commissioner to prove the factum of possession or enjoyment. This being the situation, the argument of the learned Counsel for the defendant that the report of the Commissioner would show the possession of the defendant in the plaint schedule property cannot be accepted even for the prima facie satisfaction of the Court.”

11. Will a Commission report be ‘evidence’ even if not marked or exhibited? Can it be marked after trial is over (or at the time of preparing judgment); or, in appeal?

  • Yes.
  • O 26 r 10 (2) says – ‘The report of the Commissioner and the evidence taken by him shall be evidence in the suit and shall form part of the record.’
  • In Johnson Kuriakose v. Fr.  Thomas Paul Ramban, 2019 1 KLT 6, it is observed that it is indisputable that the commissioner’s report forms part of the record in the case. Trial court has every right to look into the materials in the record to decide the disputes. Commissioner’s report cannot be excluded from consideration in the matter.

12. Can Commission Report alone be the basis for decision?

  • No.
  • In TK Krishnamurthy v. Tamil Nadu Water and Drainage Board, 2006 (5) CTC 178 it is held as under:
    • “9. The report of the advocate commissioner alone can never be the basis for deciding the suit as Commissioner should not be appointed to gather evidence to prove the case of the parties. Parties should prove their case by themselves by letting in legally acceptable evidence and the report of the Commissioner can only aid the court in evaluating the evidence to come to a just conclusion.”

13. Can a Commissioner be appointed for seizing the books of account of a party to the suit in the exercise of its inherent powers?

  • No.
  • In Padam Sen v. The State of Uttar Pradesh, AIR 1961 SC 218, it was held that ‘the Munsif had no jurisdiction to appoint a Commissioner for seizing the account books of the plaintiff, which is passed by the Court is null and void’.

14. Can a commissioner be examined (invoking Order 26) on any matter other than that “(i) touching any part of the matters referred to him or (ii) mentioned in his report, or (iii) as to his report, or (iv) as to the manner in which he has made the investigation”?

  • Cannot be, under Order 26.
  • Because under O 26 r 10 (2) the Court or, with the permission of the Court, any party is not permitted to examine the Commissioner:
    • as to a matter that is (i) not asked for and (ii) not referred to in the report.
  • Note 1: From O 26 r 10 (2) it comes out (the legislative intent) that examination is not permitted under Order 26 on such matters in the knowledge of the commissioner (even if it is there) or what he had actually seen. (The principle is obvious – it should have been got reported through the commission, by the dissatisfied party, by taking steps to get it ascertained after remitting back the report, or through a fresh commission).
  • Note 2: It appears that the legislative-intent in O26 r 10 canvases for a ‘perfect (or perfected) report’, rather than a report ‘stand corrected by cross examination’.
  • Note 3: It is with respect to a matter ‘(i) not asked for and (ii) not referred to in the report’; and not with respect to the accuracy of the report of Commissioner, in which case it is open to the parties either to cross examine the Commissioner or lead independent evidence instead of calling fresh report in the light of objection raised (Gopala Somayaji C v. R Madhava Pai, 1988(1) Kar LJ 499).

15. What is the purpose of examination of the commissioner in court (according to the provisions of Order 26)?

  • It is for the determination – whether the report is to be remitted back for “such further inquiry” under rule 10(3), after setting-aside the (earlier) report or otherwise.
  • This proposition is drifted from the conjoint reading of the following:
    • O26 r 10(2)
      • “……. the Court or, with the permission of the Court, any of the parties to suit may examine the Commissioner personally in open Court touching any part of the matters referred to him or mentioned in his report, or as to his report, or as to the manner in which he has made the investigation.”
    • O26 r 10(3)
      • Where the Court is for any reason dissatisfied with the proceedings of the Commissioner, it may direct such further inquiry to be made as it shall think fit.”
  • It appears that the legislative-intent in O26 r 10 canvases for a ‘perfect (or perfected) report’, wherever possible, rather than a report ‘stand corrected by cross examination’. Because, ‘may direct such further inquiry‘ in O26 r 10(3) primarily mandates a further inquiry by the commission itself, wherever possible. Court can appoint a commissioner suo motu, also. (Dinesh Chandra Gaur v. Abhay Sood, 2015 (2) ARC 243).
  • When a Commission report is set aside, the court is bound to remit it back to the Commissioner for getting a fresh report. (See: Yudathadevus  v.  Joseph, 2021-5 KerHC 668; 2021- 4 KerLJ 415; 2021-6 KerLT(SN) 42. The parties should not loose their case for the lapse or mistake of the commissioner.
  • But, contra view in Gopala Somayaji C v. R Madhava Pai, 1988(1) Kar LJ 499, where it was held that to disprove the accuracy of the report of Commissioner, it is open to the parties either to cross examine the Commissioner or lead independent evidence instead of calling fresh report in the light of objection raised.
  • Note: In practice (because on practicality) the courts proceed on the commission reports ‘stand corrected by cross examination’.

15A. Is it mandatory to examine the commissioner before setting it aside

  • The court being exercises when it is ‘satisfied‘ and it is the exercise of discretionary-jurisdiction, it is reasonable to say -it is not mandatory to examine the commissioner before setting aside a commission report.

16. Is the court ‘bound by‘ Commissioner’s report?

  • No.
  • Subash Soman v. State of Kerala, 2019 -2 Ker HC 700, 2019 -2 Ker LJ 729, it is observed as under:
    • “…. When a commission report and plan are filed in court, as per the direction of the court, the court shall not act merely as a post office and receive it on file. In the light of the provision contained in Order XXVI, Rule 10(3) Code, the court shall go through the report and see whether it is in order, irrespective of whether any objection is filed or not.”
  • In Retnamma v. Mehaboob, 2013 -3 Civil CC 65 (Kerala) it is held as under:
    • “57. … When a commission report and plan are filed in court as per the direction of the court, the court shall not act merely as a post office and receive it on file. It is the bounden duty of the court to go through the commission report and consider whether the commission report is satisfactory or not and whether it contains all the relevant details as may be necessary to resolve the dispute. It shall see whether the report is defective or unsatisfactory for any reason or whether any clarification is required in the report.
    • 58. In short, the court shall confirm that commissioner has elucidated all relevant facts which will help the court to take a right decision in the case. In the light of the provision contained in Order 26 Rule 10 (3) C.P.C., the court shall go through the report and see whether it is in Order, irrespective of whether any objection is filed or not. Order 26 Rule 10(3) C.P.C. lays down that where the Court is dissatisfied with the proceedings of the Commissioner, for any reason, it may direct the commissioner to make such further inquiry as it thinks fit.”
  • In Amena Bibi Versus Sk. Abdul Haque, AIR 1997 Cal. 59, Calcutta High Court held that the Commissioner’s report even if accepted by itself does not however, mean that the parties are precluded from challenging the evidence of the Commissioner or assailing the report by examining any other witness to counter the effect of the report.
  • The report submitted by the Commissioner is only a piece of evidence (Harihar Misra v. Narhari Setti Sitaramiah, AIR 1966 Ori 121; New Meena Sahkari Awas Samiti Ltd. v. Addl. District Judge, 2016 (6) AWC 5988) which has to be considered along with other evidence on record. (Tulamaya Chettri v. Yonarayan Pradhan, AIR 2004 Sik 39; Mahendranat Parida v. Purnananda Parida, AIR 1988 Ori 248)

17. Should First CR be Set Aside to Issue a Second Commission?

There is difference of opinion.

One view is that the Court Cannot (even) Set Aside a Commission Report, which “shall form part of the record” by virtue of O26 r. 10(2) CPC. There is no provision in the CPC to set aside a Commission Report.

O26 r. 10(3) CPC makes it clear:

  • Where the Court is for any reason dissatisfied with the proceedings of the Commissioner, it may direct such further inquiry to be made as it shall think fit.

O26 r. 10(3) does not specifically say –

  • (1) the court has the authority to set aside a commission report (See: Francis Assissi v. Sr. Breesiya, 2017 (1) KLT 1041);
  • (2) if the court is dissatisfied with the commission report, it shall set aside the commission report; or
  • (3) for issuing a second/fresh commission the first commissioner’s report should have been set aside.

Following arguments can also be placed in support of the view that a commission report cannot be set aside:

  • Commissioner’s report is only a piece of evidence (Paul K Lalthakima v. District Collector, Aizawl, 2018-4 GauLT 854; Sarojini v. Karthiyani Amma,  ILR  2010-1Ker 17, 2010-1 KHC 193; Geetarani Panda v. Manmath Patra, 2009-108 Cut LT 355).
  • There can be any number of such reports.#* If two Commission Reports differ on a point, the court can evaluate and assess the same with other evidence and can come to a correct conclusion.
    • #*(No doubt, they cannot be allowed to overfill the court; the restrictive mechanism is provided by the words in O26 r. 10(3) – that is, a second commission can be ordered if only “the court is, for any reason, dissatisfied with the proceedings of the Commissioner” and there is need for a further enquiry.)
  • It is laid down in O 26 r. 10(2) CPC that the commission report shall be evidence in the suit and shall form part of the record (See: Francis Assissi v. Sr. Breesiya, 2017 (1) KLT 1041). O 26 r. 10(2) reads-
    • The report of the Commissioner and the evidence taken by him (but not the evidence without the report) shall be evidence in the suit and shall form part of the record.”
  • Further, O26 r. 14(2), which stands for commission-to-make-partition, engrafts – “after hearing any objections which the parties may make to the report or reports, (court) shall confirm, vary or set aside the same“. But, such a power is conspicuously avoided in O26 r. 10 CPC (See: Francis Assissi v. Sr. Breesiya, 2017 (1) KLT 1041)

Other View – Court has to Set Aside the 1st Report for issuing a 2nd Commission

A bunch of decisions authoritatively lay down that the first commissioner’s report must have been set aside for appointing another commissioner.

The courts brought forth, for that matter-

  • Inherent power under Sec. 151 CPC (See: Chinmaya Saha v. Renuka Halder, AIR 2016 Cal 33) and
  • Rule of law based on ‘Public Policy’ (See: Swami Premananda Bharathi v. Swami Yogananda Bharathi, AIR 1985 Ker 83).
  • It is also pointed out that O26 r. 10(3) CPC is attracted (for directing further inquiry, without setting aside first CR) only when there are some deficiencies or omissions in the Report of the Commissioner.

Analysing O26 r. 10(3) CPC it is observed in Swami Premananda Bharathi v. Swami Yogananda Bharathi, AIR 1985 Ker 83, as under:

  • “The first commissioner’s report and proceedings should be set aside for reasons to be recorded and then only the court can proceed to appoint another commissioner to do the work is a wholesome rule of law based on public policy….  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.”

In Yudathadevus  v.  Joseph, 2021-5 KerHC 668; 2021- 4 KerLJ 415; 2021-6 KerLT(SN) 42, following Swami Premananda Bharathi v. Swami Yogananda Bharathi (and discarding Francis Assissi v. Sr. Breesiya, 2017-1 Ker LT 1041), it is observed as under:

  • “If a court is dissatisfied with the proceedings of the commissioner, the court can direct further inquiry to be made as it shall think fit after setting aside the commission report and plan to get the mistakes or the defects rectified.”

Swami Premananda Bharathi, AIR 1985 Ker 83, is referred to in the following decisions also:

  • RV Ganesa Naicker v. Painter Selvaraj (Mad), 2018
  • Saudagar Mahto v. Ram Charitra Mahto, 2015-2 Pat LJR 52
  • Chinmayee Saha v. Renuka Halder, AIR 2016 Cal 33
  • KN  Vishwanathan Nair v. K  Rajani, (Kar), 2010
  • M Ramesh Babu v. M Sreedhar, 2009-5 ALD 187, 2009-4 ALT 780
  • Vemba Gounder v. Pooncholai Gounder, AIR 1996 Mad 347
  • Asifunisa v. AH Imam,  1991 BBCJ 513, 1992-1 BLJ 452, 1992-1 Pat LJR 380 (Divergent views placed)

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.

Apparent Legal Position on the First-Principles

As pointed out in Francis Assissi v. Sr. Breesiya, 2017 (1) KLT 1041, O26 r. 10(3) does not specifically say that the court has the authority to set aside a commission report, which automatically forms part of the record.

A commission report is only a piece of evidence. Therefore, it is definite, on the first-principles, that there is no bar to issue a second commission in a proper case, without setting aside the earlier commission report; but, it can be done only after recording a definite finding that

  • that the earlier Commission Report is not satisfactory and
  • that there is need for a further enquiry’

as observed in R. Viswanathan v. P. Shanmugham, 1985-1 MLJ 254.

The Court said as under:

  • “It is well settled proposition that until the Court is dissatisfied with the proceedings and report of the Commissioner earlier appointed, it will not be proper to ignore the same and direct even further enquiry, much less the scrapping of the earlier report as a whole and appoint a fresh Commissioner. The power is circumscribed by the principles under O. 26, R. 10(3). The power can be exercised only after the Court below renders a finding that the proceedings and the report of the earlier Commissioner are not satisfactory and there is need for a further enquiry. In the present case, the order of the Court below does not express any opinion that the proceedings and the report of the earlier Commissioner are not satisfactory. The Court below has opined that the truth or otherwise of the allegations therein against the Commissioner’s report need not be gone into and it is better to change the Commissioner. This is not the proper way of dealing with the matter.”

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.

18. 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 – the parties should not be pushed to suffer for the lapse or mistake of the commissioner.
  • 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.

19. Can a commissioner  (for local inspection) examine the parties and/or any witness?

  • Yes.
  • O 26 r 16 says –
    • Any Commissioner appointed under this Order may, unless otherwise directed by the Order of appointment,- (a) examine the parties themselves and any witness whom they or any of them may produce, and any other person whom the Commissioner thinks proper to call upon to give evidence in the matter referred to him.

20. Should the evidence be taken in presence of parties?

  • Yes.
  • Nand Kishore v. Shiam Sunder Lal, AIR 1938 All.  215; Mehrunnissa Begum v. Begum Nathu Bibi, (1989) 1 MLJ 461 (Parties have to get opportunity of cross-examining witness also.)

21. Ex parte commission’ – can be issued. Should the commissioner give notice to the parties?

  • Yes.
  • (Maroli Achuthan v. Kunjipathumma, AIR 1968 Ker 28)

22. Ex parte commission did not give notice to the defendant. Can the report be accepted as ‘substantive’ evidence?

  • No.
  • It can be accepted as a ‘corroborative piece of evidence‘ to the evidence given by the commissioner in court. (Maroli Achuthan v. Kunjipathumma, AIR 1968 Ker 28)
    • Sec. 157 of the Evidence Act reads: “In order to corroborate the testimony of a witness, any former statement made by such witness relating to the same fact at or about the time when the fact took place, or before any authority legally competent to investigate the fact, may be proved.”

In Peedikayullaparambath Chandramathi v. P. P. Raveendran S/o Kunhikanaran, 2023-4 ILR(Ker) 415; 2023-4 KLJ 542; 2024-1 KLT(SN) 7it is held as under:

  • “The sanctity of Commission report was considered by this Court in case where the Commissioner and Surveyor were not examined in the decisions reported in Bhaskaran vs. Shobha and Others, 2010 KHC 895 : 2010 (4) ILR Ker. 403 wherein it was held that Ext.C1 report, which was on an ex-parte order of commission and prepared over an inspection of the suit properties without prior notice to the defendants could not have been acted upon, without examining the advocate commissioner, who prepared such report. Copy of the report handed over to me reveals that the commissioner conducted such local inspection, as it being an emergent commission, without notice to the defendants. Presence of the defendants at the site when the inspection was conducted as stated by the commissioner in his report, is not at all sufficient to receive such report in evidence without such report being proved examining the commissioner before the Court. Non-examination of the commissioner to prove the report prepared without prior notice to the defendants of his inspection impairs the evidenciary value of his report, which, at the most, could have been considered only for the purpose of passing orders on the interlocutory applications for interim relief of injunction which, of course, could be decided even on the basis of affidavits. But to claim a decree of injunction in the suit, the commission report prepared without prior notice to the defendants require to be proved by the examination of the advocate commissioner.
  • Thus, on a conjoint reading of Sec.83 (IEA) read with Order XXVI Rule 10, within the compass of the decisions referred, it has to be held that Commission report and plan are ipso facto evidence in the case, though the court has the power to set aside or remit back the commission report. At the same time, mandatory examination of Commissioner and Surveyor are necessary only in cases where Commission Report and plan were obtained without issuing notice to all parties to the lis. But the court has the discretion to examine the Commissioner, if such a course of action is necessary, even though the report was one prepared and filed after notice to all parties. Otherwise, non-examination of the Commissioner or Surveyor is not fatal and the Court can act on commission reports, mahzar and plan prepared and filed after issuance of notice to all parties to the Suit, eschewing examination of the Commissioner and Surveyor. In the case at hand, Ext.C3 report and Ext.C4 plan were prepared after serving notice to both sides and as such non-examination of the Commissioner and Surveyor is of no significance. Therefore, acceptance of Exts.C3 and C4 by the courts below is perfectly justified.”

Accuracy Presumed on Govt. Maps and Plans u/s 82 BSA (83, IEA)

In Dnyaneshwar Balu Patole v State of Maharashtra, 2011 AllMR(Cri) 1889; 2011-4 MhLJ(Cri) 208, it is held as under:

  • “From the language of section 83 (IEA), it is clear that Court shall presume that the maps or plans purporting to be made by the authority of the Central Government or any State Government were so made and are accurate but maps or plans made for the purposes of any cause must be proved to be accurate. It shows that when plans of town or area or certain roads, forests, rivers, nalas, etc. are prepared for public record and general information there is presumption of its accuracy. However, when a map is prepared for particular cause or purpose, there is no presumption of accuracy and that map has to be proved by leading necessary evidence. If a map is prepared by the investigating agency to prove scene of offence ,that map is prepared for the particular purpose, i.e., to establish scene of offence and certain facts, which the prosecution wants to establish, there can not be any presumption of accuracy to such map. Such map will have to be proved like any other fact by leading necessary evidence.”

23. O 26 r 10(1) says – ‘The Commissioner…  shall return such evidence, together with his report in writing signed by him, to the Court’. Should there be separate ‘evidence’ and ‘report’ (in rule 10(1), pertaining to local inspection)?

  • Rule says so.

24. Is the Commissioner in effect is a ‘projection’ of the Court?

  • In Ponnusamy v. Salem Vaiyappamalai Jangamar Sangam, AIR 1986 Mad 33, it is observed as under:
  • “The object of the local investigation under Order 26 Rule 9 is to collect evidence at the instance of the party who relies on the same and which evidence cannot be taken in Court but could be taken only from its peculiar nature on the spot. This evidence will elucidate a point which may otherwise be left in doubt or ambiguity on record. The Commissioner in effect is a projection of the Court appointed for a particular purpose.”

25. Is Surveyor-plan Attached to Commission Report ipso facto ‘Evidence’?

  • No; it will be admitted (only) as a part of report and not independently.
  • In Retnamma v. Mehaboob, 2013 -3 Civil CC 65 (Kerala) it is observed by the Kerala High Court that normally, a surveyor’s plan is appended to the report, for explaining the facts contained in the report in a better and easier manner; and therefore, the plan will form part of the report and it can be admitted in evidence (only) as part of report and not independently, as a ‘evidence’. However this decision considered – can a plan prepared by a Surveyor be treated as ‘evidence’, ipso facto.
    • It is answered ‘no’ holding that if the commissioner did not state anything in his report about Surveyor’s plan to vouchsafe correctness of the details of measurement shown in the plan etc., details shown in surveyor’s plan cannot be relied upon by the court.

The Kerala High Court, in Retnamma v. Mehaboob, observed as under:

  • (i) Order 26 Rule 10 (2) CPC speaks on ‘Evidence’ (without the report).
  • (ii) What is intended to be treated as ‘evidence’ are the facts, which the commissioner has reported in his report about which, commissioner has direct knowledge.
  • (iii) The provision contained in Order 26 Rule 10 (2) CPC is not intended to admit ‘hearsay evidence’. (Hearsay is no evidence – Section 60 of Evidence Act.)
  • (iv) However, if commissioner reports the correctness of the plan, on the basis of what he had personally observed, the commissioner is competent to give evidence‘, by virtue of Order 26 Rule 10 (2) CPC.
  • (v) Mere marking of a document will not tantamount to proof of its execution nor will it prove correctness of the facts stated in the writing contained in the document. (Ramji Dayawala v. Invest Import, AIR 1981 SC 2085: 1981-1 SCC 80).
    • Note: When the survey-plan prepared by a survey-commission is not challenged, it appears that in the fact situation of a particular case, it may go in evidence (in spite of its infirmities – including the hearsay rule), on the principles of estoppel and presumption. [It appears that the rule in Ramji Dayawala Vs. Invest Import, AIR 1981 SC 2085, applies only in cases where ‘the truth of the facts stated in a document is in issue’.]

Section 82 of the Bharatiya Sakshya Adhiniyam, 2023 (Section 83 IEA), provides as under:

  • “82. Presumption as to maps or plans made by authority of Government: The Court shall presume that maps or plans purporting to be made by the authority of the Central Government or any State Government were so made, and are accurate; but maps or plans made for the purposes of any cause must be proved to be accurate.”

Read Blog: Proof and Truth of Documents

Discrepancy between Pleading and Commission Report; Should plaint be Amended?

In Muttil Rajan v. Kuthirakkal Letha, Kerala High Court (Thomas P. Joseph, J.), 2012, found that the plaint schedule extent (lesser in measurement) has to be accepted. It is held as under:

  • “24. It is pointed out by the learned counsel for the appellants that in Exts. C1 and C2, the measurement given for the plaint C schedule is a length of 3 meters and width of 1.10 meters. But in the plaint C schedule, the measurement  given is length of 2.5 meters and width of 3 feet. The learned counsel for the respondents points out that the discrepancy arose in Exts. C1 and C2 only because the Advocate Commissioner has measured the length of the way from the tar end of the public road on the extreme north.
  • 25. I must also notice that in Exts.C1 and C2, whatever be the length stated, the Advocate Commissioner has shown that the plaint C schedule starts from the public road on the northern side, goes along the eastern portion of the plaint B schedule and reaches the plaint A schedule. In other words the plaint C schedule as shown by the Advocate Commissioner in Exts.C1 and C2 whatever be its length, has its starting point at the north eastern corner of the plaint A schedule and termini at the public road on the northern side of the plaint B schedule. I must also notice that the decree granted by the trial court and confirmed by the first appellate court is with respect to the plaint C schedule.”

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Does ‘Pandaravaka Pattom’ in Kerala Denote Full-Ownership on Tenants?

Saji Koduvath, Advocate, Kottayam.

Abstract

  • 1. Does ‘Pandarappattom’ mark Full-Ownership? If so, from which year?
    • Answer: Yes; from 1040 ME (1865 AD) .
    • In Purushothaman Nambudiri v. State of Kerala, AIR 1962 SC 694, the Constitution Bench of Supreme Court held that Pandarappattom properties in the erstwhile Cochin State come within ‘estate’* under Article 31A(2)(a) of the Constitution.
      • * Estate denotes property ownership.
    • Five-Judge-Bench in Rev. Fr. Victor Fernandez v. Albert Fernandez, 1971 KLT 216: AIR 1971 Ker 168, held that Pandarapattom land in the Travancore area of the Kerala State satisfied even the orthodox definition of ‘ownership’ by Austin and was ‘estate’ within the meaning of Article 31A(2)(a) of the Constitution.
  • 2. Can the Government ‘Lease-out’ Lands after 1061 (1886) Pattom Proclamation?
    • Answer: Yes; It is a Civil Right of every Owner of Properties.
  • 3. Will the lease-character, of the Govt. leases after 1061, be lost (because of the 1040 and 1061 Proclamations) at the moment it is made, for it is “Pandaravaka-pattom”.
    • Answer: No; Proprietary rights as “Pandaravaka-pattom” are conferred only to Govt. leases prior to 1886.
    • (Note: Same is the situation in Cochin also. The crucial year is 1905)

Connected Blogs:

Introduction

Origin of Land-Tenure – ‘Pandaravaka’

Erstwhile Kingdom of Travancore, situated in southern part of Kerala was ruled by Marthandavarma, the powerful King, from 1729 to 1758. He was successful in bringing all people and properties of Travancore under his administration; and collected tax from all lands except those that were expressly exempted.

Major portion of the cultivable lands, other than the land owned by the Sircar, were under the Devaswoms or temples (Devaswom lands), and the Brahmin Janmies (Brahmaswom lands). Brahmins or their families were the administrators (called ‘Ooralers’) of the temples.  

The Brahmins and prominent Nairs were the territorial lords. They were called Jenmies; and the lands belonged to them were known as Jenmom lands. The Sirkar (King) was the greatest Jenmi. Apart from original Jenmom lands, the rulers and the King obtained land by gift, purchase, escheat, confiscation etc.

Travancore – Padmanabha Swamy Temple and ‘Pandara Vaka’ Lands

The King of Travancore, Marthandavarma, placed himself as the servant of the principal deity of the kingdom, Sree Padmanabha adorned the Padmanabha Swamy Temple at Thiruvanamthapuram. The entire assets of Travancore were regarded as the property that belonged to the Treasury or Offertory (Bhandaram in Malayalam; Pandaram in Tamil) of the principal deity – Sree Padmanabha Swamy Temple.

Revenue Settlement of Travancore in 1910

The survey and settlement of Travancore State had been commenced in 1885 during the reign of Sri. Moolam Thirunal; and was finalised in 1910. In the Settlement Register the Sircar lands given to cultivators on various tenures were termed as Pandaravaka lands. The Settlement Register of 1910 is taken as the basic record of land related matters.

Travancore‘Jenmi’, ‘Jenmom

Padmanabharu Govindaru Namboodiripad v. State of Kerala (FB) AIR  1963 Ker 86, observed as under:

  • “Coming  to the second category of lands, viz. , Jenmon lands, the jenmies have full proprietary rights in the soil. The origin of the title of the jenmies is shrouded in obscurity but the development of this branch of land tenure was on the assumption that Parasurama who con-quered the land of Kerala or, as mythology would put It, reclaimed it from the sea, gave it as gift to Malayala Brahmins or nambudiries. The rest of the people culti-vated the lands under the Jenmies. In course of time, the Jenmies endowed certain temples built by them with ‘lands and thus the Devaswom lands came into existence. These were similar in nature and incidents to Jenmom lands. These lands were enjoyed free of tax, the State imposing a light assessment only when the Jenmies alienated the land to others.  We may extract the following passage from Sri T. Madhava Row’s Memorandum regarding the origin and nature of Jenmom rights : 
  • “a Jenmi is often termed a landlord. But, it must be clearly  understood and also always remembered that a Jenmi though certainly a landlord, is a peculiar Kind or landlord. Any person, who holds a pattah from a Collector In a British District and under it holds from the British Government subject to Government tax more or less, Is called a landlord in ordinary language. Even in Travancore, any coffee planter or indeed any ryot, who holds lands under a grant from the Sirkar, etc. , is or may be called a landlord. But, be it remembered, such landlords are not Jenmies. A Jenmi differs from such landlords in that he does not derive his title to lands from the Sirdar etc. His title to the Jenmom lands is inherent. He is, so far as his Jenmom lands are concerned, a little territorial sovereign in a limited sense. He is landlord of his Jenmom domain exactly in the sense in which this Sirkar is landlord of all the land it grants to planters and indeed to all ryots in general; in the sense in which the British government is landlord of all the Ryotwari lands of the East Coast Zillahs of the Madras Presidency. It is necessary, in view to avoid errors and misconceptions, to familiarize the mind to this definition of t Jenmi. The origin of Jenmom property may be briefly explained here with a view to make the rights of jenmis clear. Kerala Desom   (in which Travancore is included) was origi-nally conquered by Parasurama, and this great warrior parcelled out the conquered lands among a limited number of brahmins. The Brahmins then became territorial lords, each independent of the rest. From that early age, the lands have descended with the tenure almost unimpared. The lands so belonging to each Brahmin are said to constitute his Jenmom, and the Brahmin himself is called a jenmi. These lands, so long as they continue in possession of the Jenmi, are free of all taxation. To this day this exemption continues in full force. Jenmom lands are precisely what are in Europe called allodial properties as contradistinguished from feudal. It must be clear from what has been stated that all the lands in travancore belong to a body of jenmis. There are no lands that do not belong to some Jenmi or other. Be it remembered that the Sirkar itself is one of these Jenmis, it  having come to possess Jenmom lands by gift, purchase, eacheat, confiscation and other ways. It is only a great Jenmi, great fn the sense that its jenmom property is extensive. If any person wants land in Travancore, he must obtain it from, and hold it of, some one of the body of Jenmis, i. e. , from the Sirhar, which is the chief Jenmi, or from some other Jenmi   “. (pp. 2 and 3 of Travancore land Revenue Manual, Vol. IV)
  • We  may also refer to certain passages from an article contributed by a former maharaja of Travancore in 1882 :
  • “according to all legends and all available evidence, the Malabar Coast was populated by Aryan emigrants from the eastern side of the ghauts. It is equally a fact that the priestly class not only predominated among the emigrants, but actually monopolised the whole of the land of their adoption to themselves, the rest of the emigrant population being their drawers of water and hewers of wood, thejr serfs or at the most, their tenants-at-will. But to stereotype the configuration of society for all time to come, is as much an impossibility as to fix that of the clouds of the sky. Aggregations and segregations of power, influence and wealth, must ever and anon go on under the guidance of the universal law of struggle for existence and survival of the best. These priests are the wisest, and consequently the most powerful, who, without directly arrogating secular power to themselves, can bring into the meshes of their moral influence, those in whose hands that universal law places such power. The ecclesiastics of the Malabar Coast knew this as instinctively as the ecclesiastics of Rome. But they had the additional advantage of having something more solid than benedictions and indulgences to confer upon their political stewards, vi viz. , sovereignty of the land which exclusively belonged to them. They were equally wise and far-sighted in another step they took. They foresaw that the halo of sanctity which encircled themselves might not be proof against the gradual degeneracy of religious feelings which time must produce, and the consequent encroachment upon their supremacy in the land. And they constitutionalized that sanctity by demising large tracts of land and their revenues to certain temples built and consecrated by them. Men who would not hesitate to rob a priest may still hesitate to commit sacrilege on an object of general religious worship. Of these temples, the priests assumed the proprietary wardenship. Almost every temple of note had a synod of these priestly wardens. They invited the leading layman or chief to a membership of the synod and entrusted to him the stewardship of the whole temple domain, subject to their superior authority. Thus arose those rich temples. Thus arose the sovereignties of the Malabar Coast”. (pp. 6 and 7 of Travancore Land Revenue Manual, vol. IV-1916  ).
  • It  cannot be disputed that these Jenmis and Devaswoms had full proprietary right in the soil and that the lands in which they have ‘jenmom rights’ are ‘estates’ within the definition of the word in Article 31-A.”
    • Note: Govindaru Nambooripad v. State of Kerala, AIR 1963 Ker 86, was overruled by the larger Bench in Rev. Fr. Victor Fernandez v. Albert Fernandez, 1971 KLT 216: AIR 1971 Ker 168, and it was held that Pandarapattom land in the Travancore area of the State was ‘estate’ within the meaning of Article 31-A(2)(a).

Malabar –‘Jenmi’, ‘Jenmom’ and ‘Ryotwari System’

Malabar is the northern part of Kerala. It formed part of the erstwhile Madras province in the British India. Two types of tenures were important in Madras Presidency: landlord-tenures and the ryotwari-tenures. The properties held by Janmis were regarded as their absolute proprietors. A large number of tenants cultivated the land. They paid rent to the Janmies.

Ryotwari System in Malabar – Lease by Government, under Pattas

Land owned by the Government was given to the cultivators under the ryotwari system, under a patta. Sir Thomas Munro, Madras Governor, introduced ryotwari system throughout the Madras Presidency in 1820.  British Government collected taxes directly from the peasants. The rate of tax was 50% in dry-lands and 60% in irrigated land.

A ryotwari pattadar was not a proprietor of land in its full sense, but only a tenant. Still, such pattadar was virtually taken as a proprietor.

Ryotwari Settlement – Assessment for Revenue

The basic idea of ryotwari settlement (revenue-settlement is fixing tax or rent, after survey in most cases) was that every bit of land was assessed to a certain revenue and assigned a survey number for a period of years, which was usually thirty and each occupant of such land held it subject to his paying the land-revenue fixed on that land. But it was open to the occupant to relinquish his land or to take new land which had been relinquished by some other occupant or become otherwise available on payment of assessment.

Cochin – Land Situation

Cochin was brought under the centralised administration by the King, Rama Varma, popularly known as Sakthan Thampuran (1790 – 1805). The feudal custom prevailed in Cochin had been divided the land under several Naduvazhis or local chiefs.
During the second half of 18th century, as in the case of Travancore, major portion of the lands in Cochin were brought under the Government administration, and these lands were also called Sircar or Pandaravaka lands.

Cochin-Pandaravaka Verumpattom lands 

Settlement Proclamation of Cochin of 1030 ME (1905 AD) made a mountainous change in the land situation. Clause 13 of the Settlement Proclamation provided that the holders of Pandaravaka Verumpattom lands would acquire ‘full rights to the soil of the lands’ they held.

Read Blog: Land Tenures, and History of Land Derivation, in Kerala

Classification of Lands in Travancore

The lands were classified under 8 heads in the Travancore Land Revenue Manual (1915). 

  • They were –(i) Edavagas;
    • (ii) Registered lands;
    • (iii) Purambokes;
    • (iv) Tharisu or assessed waste;
    • (v)Thanathuchitta lands;
    • (vi)  Reserved Forests;
    • (vii) Reserved lands or proposed reserves;
    • (viii) Unreserved lands.

Travancore Land-Tenuers

According to the Travancore Land Revenue Manual, (1915), the tenures fell under two main heads:

  • Sirkar or Pandaravaga;
  • Janmam.

In settlement (1910), numerous tenancy-tenures had been recognized. 

For practical purposes, as per the Travancore Land Revenue Manual, the tenures were classified as under:

  • 1. Sirkar or Pandaravaga
  • 2. Sirkar Devaswom vaga
  • 3. Kandukrishi
  • 4. Sreepadam vaga
  • 4. Sree pandaravaga
  • 6. Janmam

Sirkar or Pandaravaga:

This tenure represents Sirkar as the landlord.  The tenures fall under the following heads:

  • (a)  Pandarapattom, (b)  Otti, (c)  Enam, (d)  Viruthi, (e)  Special tenures, (f)  Karamolivu,

a)  Pandarapattom,

  • Pandarapattom was originally in the nature of lease without any proprietary or transferable right.  By the royal proclamations, the holders of these lands were given with full proprietary rights and declared to be private, heritable and transferrable property.  Puthuval lands came under this tenure. 

b)  Otti

  • It was originally in the nature of a mortgage.  It stood as a real or constructive loan by the State.  Interest was deducted from Pattom to be paid by the holder.  He had also to pay Rajabhogam (tax).

c)  Enams

  • Enams were service enams or personal enams.  Service enams were inalienable.  It continue as long as the holder was in service.  Personal enams were given to support individuals or families.  Such properties could have been transferred by the holders.

d)  Viruthi

  • It stood analogous to service enams.  But had permanency if the holder continued his service regularly.  When he died the holding passed to legal heirs subject to certain payments.

e)  Special tenures

  • It was in the nature of enam which received special treatment.

f)  Karam-olivu

  • All Lands except janmam included under this head.  The land was tax-free.

Land-Classification in Cochin – Pandaravaka and Puravaka

All lands were classed under Pandaravaka, or Puravaka. The lands owned by the State (or having the jenmom or proprietary right) were the Pandaravaka lands. The proprietary right over Puravaka land rested with private individuals or public institutions.

The chief land systems of tenancy were called Verumpattom. This was simple leasehold. By a series of legislative enactments, tenants gained occupancy rights in the lands held by them.

Land Reform Measures that Shaped Kerala

The Kerala Land Reforms Act, 1963 made Kerala change tremendously. Modern Kerala is shaped by this Act. The legislation was not a sporadic one. The history shows – there were several ‘pre-independence’ Landmark Enactments that had paved the way to the KLR Act:

Landmark Enactments in Land Tenure Reforms

  1. Travancore Royal Pattom Proclamation, 1040 (1865) pertained to Pandaravaka lands
  2. Cochin Settlement Proclamation, 1080 (1905) pertained to Pandaravaka lands

Travancore Royal Pattom Proclamation of 1040 (1865 AD) – Magna Carta of peasants

During the second half of the 19th century several Royal Proclamations were promulgated with a view to confer rights in the land to the tenants who were the real cultivators. Majority of the people were engaged in agriculture; but the lands belonged to Jenmies (Sircar, Brahmins or Devaswoms).

The cultivators held the land under lease arrangement known as Pattom, Otti, Inam and Viruthi etc. One of the important Regulations came in the line of agrarian reforms was the Royal Proclamation of 1040 ME (1865 AD). It pertained to Pattom (lease) tenements created (by Sircar) on Sirkar lands known as Pandaravaka lands. It is exalted as the Magna Carta of peasants of Travancore it being led to conferring land to tillers, step by step.

Permanency to Cultivators

Till 1040 ME (1865 AD), the agriculturists, who held the Pandaravaka lands under Pattom arrangement, were liable to be treated as mere tenants-at-will; the land being resumable at any time, as they were in the nature of temporary leases just like tenements created by private jenmis.

The Pattom Proclamation of 1040 converted the pattom arrangement on pandaravaka lands into permanent leases and conferred on the holders thereof permanent rights of occupancy, heritable and alienable. Though the Proclamation of 1040 ME did not expressly confer full proprietary rights on tenants, it gave the tenants permanency in the Pandaravaka soil; and it recorded the fist gigantic step towards the land reforms in Travancore.

Royal Proclamation of 1040 ME (1865) declared:

  • “Whereas we earnestly desire that the possession of landed as well as other property in Our Territory should be as secure as possible, and whereas, we are of opinion that, with this view, Sirkar Pattom lands can be plated on a much better footing than at present so as to enhance their value; We are pleased to notify to Our Ryots –
  • 1st. That the Sirkar hereby and for ever surrenders, for the benefit of the people all optional power over the following classes of lands, whether wet, garden or dry, and whether included in the Ayacut accounts or registered since VenPattom, Vettolivoo Pattom, Maraya Pattom Olavoo Pattom Mara Pattom, and all such Durkast Pattom, the tax of which is understood to be fixed till the next Survey and Assessment.
  • 2ndly. That the Ryots holding these lands may regard them fully as private, heritable, saleable, and otherwise transferable, property.
  • 3rdly. Accordingly, the sales, mortgages, etc., to these lands will henceforward be valid, may be effected on stamped cadjans, and will be duly registered. The lands may be sold for arrears of tax. In execution of decrees of Courts and such other legitimate purposes, and may also be accepted as security by the Sirkar as well as by private individuals.
  • 4thly. That the holders of the lands in question may rest assured that they may enjoy them undisturbed so long as the appointed assessment is paid.
  • 5thly. That the said holders are henceforth at full liberty to lay out labour and capital on their lands of the aforesaid description to any extent they please, being sure of continued and secure possession.
  • 6thly. That the aforesaid description of lands will be resumable by the Sirkar like Jenmom and other private lands only for purely public purposes, as for instance, for making roads, canals, public buildings, etc., and when resumed for such purposes, compensation will be paid by the Sirkar not for improvements only as heretofore, but equal to the full market value of such lands.
  • 7thly. That the foregoing concessions are not how-ever to be understood to affect it any way the rights of the Sirkar to regulate the land tax, to resume escheats, to confiscate the property of criminals, and generally such rights as have heretofore, been exercised upon ail property in general.
  • 8thly. That it is to be understood that when Pattom land, being a portion of a holding, is transferred to a pauper with a view of defrauding the Sirkar of the tax due to it, the Sirkar will have the right of apportioning the tax so as to prevent loss of revenue; and
  • 9thly — Repealed by Proclamation dated the 5th Karkatakom 1059.” (Quoted in: Padmanabharu Govindaru  v. The State of Kerala, AIR 1963 Ker 86.)

Cochin Settlement Proclamation of 1080 (1905)

The Sirkar or Pandaravaka tenure holders of the Kingdom of Cochin were conferred with fixity of tenure by the Settlement Proclamation of 1080 (1905). The Settlement Proclamation of 1905 covered all lands in the State, including lands held under concessional tenures or as tax-free. The Rules made under the Act contained the procedure for the issue of title deeds in respect of lands held under such grants. As stated above, Clause 13 of the Settlement Proclamation provided that the holders of Pandaravaka Verumpattom lands would acquire ‘full rights to the soil of the lands‘ they held. Settlement Proclamation of Cochin of 1080 Clause 13 provided as under:

  • “At present holders of Pandaravaka Verumpattom lands do not possess any property in the soil. As we are convinced that proprietorship in soil will induce a cultivator to improve his land and thereby add to agricultural prosperity of the country, we hereby declare that our Verumpattom holders of lands shall, after the new settlement has been introduced, acquire full rights to the soil of the lands they hold and that their rights shall remain undisturbed so long as they regularly pay the State revenue, provided that the rights to metals and minerals, possessed by the State in all lands under whatever tenures they are held, are reserved to the State”.

The Settlement Proclamation was expressly repealed by the Land Tax Act of 1955 of the united State of Travancore-Cochin; but this Act, as a whole, was struck down by the Supreme Court in AIR 1961 SC 552. In Kesavan Vadhyan Namboodri v. State of Kerala, AIR 1968 Ker 279, it was pointed out that this Proclamation of 1080 stood repealed by implication by the Land Tax Act of 1961.

‘Jenmam’ and Pndarapattom Land Whether ‘Estate’ Within Article 31-A

‘Jenmam’ is ‘Estate’ within Article 31A

  • In K. K. Kochunni v. States of Madras and Kerala, AIR 1960 SC 1080 and Govindaru Nambooripad v. State of Kerala, 1962 Ker LT 913 :  AIR 1963 Ker 86 it was held that jenmom right was the freehold right with ‘proprietary interest’.

Article 31A(2) of the Constitution of India reads thus:

“31A (2). In this article-

  • (a) the expression ‘estate ‘ shall, in relation to any local area, have the same meaning as that expression or its local equivalent has in the existing law relating to land tenures in force in that area, and shall also include any jagir, inam or muafi or other similar grant, and in the States of Madras and Kerala any janmam right;
  • (b) the expression ‘rights’, in relation to an estate, shall include any rights vesting in a proprietor, sub-proprietor, under-proprietor tenure-holder, raiyat, under-raiyat or other intermediary and any rights or privileges in respect of land revenue.”

In K. K. Kochunni v. States of Madras and Kerala, AIR 1960 SC 1080, the Supreme Court, while dealing with Article 31A of the Constitution, said:

  • “Under the definition, any Jenmom right in Kerala is an ‘estate’. A jenmom right is the freehold interest in a property situated in Kerala. Moor in his “Malabar Law and Custom” describes it as a hereditary proprietorship. A jenmom interest may, therefore be described as ‘proprietary interest of a landlord in lands‘.”

In Purushothaman Nambudiri v. State of Kerala, AIR 1962 SC 694, the Supreme Court held as under:

  • “It seems to us that the basic concept of the word ‘estate’ is that the person holding the estate should be proprietor of the soil and should be in direct relationship with the State paying land revenue to it except where it is remitted in whole or in part”.

In Govindaru Nambooripad v. State of Kerala, 1962 Ker LT 913 :  AIR 1963 Ker 86, it was observed that ‘Thanathu, Thettom, Manavaka, Brahmaswom Vaka, Devaswom Vaka, Kudijenmom, Kanom, Kanom Kudijenmom and Venpattom’ created by Jenmis must be held to be covered by the word ‘Estate’ in Art. 31A of the Constitution. It held further as under:

  • “20. It cannot be disputed that these Jenmis and Devaswoms had full proprietary right in the soil and that the lands in which they have Jenmom rights’ are ‘Estates’ within the definition of the word in Article 31-A.”
  • “21. … As regards ‘Inam lands’ it was conceded that the holders had full proprietary rights in the soil. These consist of Pandaravaka Adima, Anubhogam, Thiruvulam, Danom, Pandaravaka Kudijenmom, Erayeli, Viruthi and Karam Ozhivu. Inam lands other than Erayeli and Viruthi (Service Inams) were dealt with under S. 24 of the Revenue Settlement Proclamation of 1061 M.E. (1886 AD). Clause 7 of S. 24 provided:
  • “There shall be no further interference on the part of the Government with these free holds, except such as might be necessary for the punctual realization of the quit rent payable”.
    • Note: 1. It was held in Govindaru Nambooripad v. State of Kerala, AIR 1963 Ker 86 (analysing the 1040 ME, Travancore Proclamation) that the provisions of the Proclamation did not confer on the tenants absolute proprietary rights in the soil.
    • 2. Overruling Govindaru Nambooripad v. State of Kerala, it was held in Rev. Fr. Victor Fernandez v. Albert Fernandez, 1971 KLT 216: AIR 1971 Ker 168, that Pandarapattom land in the Travancore area of the State was ‘estate’ within the meaning of Article 31-A(2)(a).

Pandarapattom’ (Cochin & Travancore) – Proprietary right

In Purushothaman Nambudiri v. State of Kerala, AIR 1962 SC 694, the Supreme Court held** that Pandarappattom properties (in Cochin) come within ‘estate’ under Article 31A of the Constitution. The Apex Court considered the proclamation issued by his Highness Sir Rama Varma Raja of Cochin on March 10, 1905. Clause 13 that rendered ‘full rights to the soil of the lands they hold’.

  • ** By majority, P.B. Gajendragadkar, A.K. Sarkar, K.N. Wanchoo, K.C. Das Gupta; and N. Rajagopala Ayyangar, dissenting.

The Supreme Court (majority) held, with respect to Cochin Regulation as under:

  • “It would thus be seen that under clause 13 the person holding lands on the Pandaravaka Verumpattom tenure is not a tenant. He is given the proprietary right in the soil itself, subject of course to the rights as to metals and minerals reserved in favour of the State, indeed, the whole scheme of the new Proclamation appears to be to change the character of the possession of the Pandaravaka Verumpattom tenure-holder from that of a tenant into that of a proprietor-holder. It is true that he is made liable to pay half of the net produce and that may appear to be a little too high, but the measure of the levy will not convert what is intended to be a recovery of assessment Into a recovery of rent. The proprietor of the land held on Verumpattom tenure is nevertheless a proprietor of the land and he holds the land subject to his liability to pay the assessment to the State. It is not difficult to imagine that in a fairly large number of lands held by Pandaravaka Verumpattom tenure-holders the holders in turn would let out the the lands to the cultivators and thus would come into existence a local equivalent of the class of intermediaries. Land revenue record is required to be prepared by the Proclamation and relevant entries showing the extent of the properties belonging to the respective holders and the details about their liability to pay the assessment are intended to be shown in the said record. In our opinion, it would not be reasonable to hold that the ‘lands held by the petitioner under the Pandaravaha Verumpattom tenure do not confer on him the proprietary right at all but make him a tenant of the State“.

But, N. Rajagopala Ayyangar, J., while descending, observed as under:

  • “In this connection I might usefully refer to a proclamation of the ruler of Travancore of 1865 (1040 M. E.) regarding Sarkar-pattom lands, with the observation that subject to variations dependent on local usages, the system of land tenure and the concepts as regards the rights of property in land were substantially similar in Travancore and Cochin. Sarkar-pattom lands were what might be termed ‘Crown lands’ of which the ruler was deemed to be the Jenmi or the landlord. Previous to the proclamation the lands were legally capable of being resumed by the ruler, though this was seldom done and the cultivators were not legally entitled to transfer their rights and where this was done the Government had the right to ignore the transaction. The fact that the cultivator was conceived of as having no proprietary interest on the land also bore adversely on the State since the State was deprived of the means of realising any arrears of revenue by bringing the holding to sale. It was to remedy this situation that the proclamation was issued and the preamble and its terms carry the impress of the impact of the ryotwari system of Madras.”

After referring the 1040 Proclamation, Ayyangar, J. said as under:

  • “The language employed in the proclamation is of significance. It speaks of the relinquishment or withdrawal of the right of the State and not of the conferment of a right on the ryot so as to render the ryot a grantee from the State, just in line with the Hindu Law theory of the proprietorship of the soil vesting in the occupant-cultivator.”

In Govindaru Nambooripad v. State of Kerala, AIR 1963 Ker 86 (FB), in spite of the decision in Purushothaman Nambudiri v. State of Kerala, AIR 1962 SC 694 (pertained to Cochin), it was held that Pandarapattom (or Pandaravaka pattom) lands in the Travancore area cannot have the protection of Article 31A of the Constitution. Analysing the 1040 ME Travancore Proclamation, it was held by the High Court as under:

  • “11. The provisions of the Proclamation do not, in our opinion, confer on the tenants absolute proprietary rights in the soil. There is no clause by which the Sirkar parted with all rights in favour of the tenants and in the absence of such a provision, the holders of such lands can only be treated as holding such lands on perpetual leases.”

Kannan Devan Hills Produce v.  The State of Kerala, AIR 1972 SC 2301

The Supreme Court, in Kannan Devan Hills Produce v. The State Of Kerala, AIR 1972 SC 2301 (Sikri (Cj), Shelat, A.N. Ray, I.D. Dua, , H.R.  Khanna, JJ.) held that Kenan Devan Hills Concession (on grant deeds) fall within the expression “Janmam right” vested with Sircar. This land is dealt with under this heading, i.e. Pandaravaka Lands, i.e. lands belonging to the Sircar.

Points came for consideration were the following:

  • 1. Whether the Kannan Devan Hills (Resumption of Lands) Act, 1971 was protected from challenge under Art. 31A of the Constitution. That is, whether these lands fall within expression ‘Janmam right’ or “estate”  in art. 31A of the Constitution.
  • 2. If the lands acquired were an “estate”, or with ‘Janmam right’ owned by the Company, the land reform enactment did not have stood valid. (Note: Kesavananda Bharathi Case came in 1973.)

According to the petitioner Company, ‘it has at all times been holding, cultivating, enjoying and dealing with the Concession Land as the absolute, owner thereof’.

The position taken by the State was –

  • that the petitioner Company was not an absolute owner, but only a lessee under the Government, especially since the 1899 Proclamation issued by H.H. the Maharaja.
  • that the petitioner’s predecessor-in-title was John Danial Munro, who obtained, the first Pooniat Concession from Punjar Valiya Raja, on July 11, 1877. This Concession recited that an, application was made for the grant of the above property to the Raja for coffee cultivation.
  • It was further stipulated in the Concession that
    •  “you shall clear and remove the jungles, and reclaim the waste lands within the said boundaries, and cultivate them with coffee up to the year 1058 and from the year 1059, pay our rent collector a yearly rent at the rate of 3,000 British Rupees.”
  • H.H. the Maharaja (Travancore) executed a deed of ratification, dated November 28, 1878, by which the Government ratified the First Pooniat Concession dated July 11, 1877.
  • This deed of ratification laid down –  the Government permitted the grantee to  hold  the land.
  • Clause 5 of the Deed of Ratification, is important. It provides, inter alia, that
    • “the grantee can appropriate to his own use within the limits of the grant all timber except … Teak, Cole Teak, Blackwood, Ebony, Karoonthaly, Sandalwood……….
  • The eleventh clause reads – “The land granted shall be held in perpetuity as heritable or transferable property, but every case of transfer … be immediately made known to the Sircar….”
  • The twelfth clause stipulates – “The discovery of useful mines and treasures within the limits of the grant shall be communicated to the Sircar, ….”
  • The sixteenth clause provides – “The grantee shall be bound to preserve the forest trees growing on the banks of the principal streams …. fifty yards …. Similarly … preserve the, trees about the crest of the hill to the extent of a quarter of a mile on each side.”

The Apex Court found the following:

  • The janmam rights (even if remained with the Poonjar Chief), H.H. the Maharaja became the janmi by the Royal proclamation of 1899.
  • The nature of ‘janmam right’ has been examined by this Court previously in Kavalappara Kottarathil Kochuni v. State of Madras [1960] 3 S.C.R. 887 Subba Rao, J., observed that janmam right in Kerala is an “estate and it is the freehold interest.
  • The Sircar itself is one of these Janmis and it was the largest Janmi. It came to possess janmam lands by gift, purchase, escheat, confiscation and other ways.
  • If any person wants land in Travancore, he must obtain it from, some one of the body of Janmis, i.e. from the Sircar, which is the Chief Janmi, or from some other Janmi.

The Apex Court held that it was difficult to resist the conclusion that the lands in dispute fall within the expression “Janmam right” vested with Sircar.

The Apex Court further found 

  • The Registered Lands included inter alia, (a) Pandaravaka lands and (b) Janmam lands. “Pandaravaka or Sircar lands are, lands of which the State is the landlord or the Jenmi and whatever rights which vest in the ryots are derived from the Sircar.”
  • Kenan Devan Hills Concession is dealt with under this heading, i.e. Pandaravaka Lands (lands belonging to the Sircar).
  • It thus appears that the State grants like
    • Kanan Devan Hills Concession and
    • Ten Square Miles Concession, and
    • Munro Lands,
  • were treated under the heading ‘Pandaravaka Lands, i.e. lands belonging to the Sircar.

On these findings The Apex Court upheld the Kannan Devan Hills (Resumption of Lands) Act, 1971 and dismissed the challenge of the Company.

Pandarapattom lands in Cochin & Travancore – Proprietary Right in the Soil

(In the matter of compensation when acquire land by Govt – under Art. 31A, Constitution)

Following decisions are important in this regard:

  • 1. Purushothaman Nambudiri v. State of Kerala, AIR 1962 SC 694
  • Proprietary Rights to Pandarapattom Lands in Cochin, in view of 1905 Proclamation.
  • N. Rajagopala Ayyangar, J. (descending) referred 1040 Travancore Proclamation, and said that there was only withdrawal of the right by the State and no conferment.
  • 2. Govindaru Nambooripad v. State of Kerala, AIR 1963 Ker 86 (FB)
  • Pandarapattom Confered No Proprietary Rights in Travancore; only treated as holding on perpetual leases. (Overruled in Rev. Fr. Victor Fernandez)
  • 3. Rev. Fr. Victor Fernandez v. Albert Fernandez, AIR 1971 Ker 168 (5 Judge Bench)
  • Proclamation of 1040 (1865 AD), all Sircar-pattom-lands were converted into full proprietary-lands

Rev. Fr. Victor case – Tenants of Pandarapattom Confered Proprietary Rights

Govindaru Nambooripad v. State of Kerala, AIR 1963 Ker 86, was overruled by the larger Bench in Rev. Fr. Victor Fernandez v. Albert Fernandez, 1971 KLT 216: AIR 1971 Ker 168, and it was held that Pandarapattom land in the Travancore area of the State was ‘estate’ within the meaning of Article 31-A(2)(a). (See: Harrisons Malayalam Limited v. State of Kerala, 2018-2 KHC 719; 2018-2 KLT 369).

It was found in Rev. Fr. Victor Fernandez case that by the Proclamation of 1040, all Sircar-pattom-lands were converted into full proprietary-lands, and rights on tenants of Pandarapattom lands had thenceforth been conferred with proprietary-rights.

In Rev. Fr. Victor Fernandez v. Albert Fernandez, 1971 KLT 216: AIR 1971 Ker 168, it was observed as under:

Per PT Raman Nayar, CJ, T Krishnamoorthy Iyer, P Unnikrishna Kurup, JJ.:

  • “11. …. We have already shown how, in the face of the Proclamation of 1040, it is impossible to regard the holders of these lands as tenants in the strict sense of that term having only the right to enjoy the land and no interest in the land as such. We have also drawn attention to the fact that what they pay to the Government is, under the very terms of the Proclamation, assessment or land tax, in other words, land revenue, and not rent properly so-called. As stated in 1962 Ker LT 913 = (AIR 1963 Ker 86 FB). with reference to contemporary documents, the avowed purpose of the Proclamation of 1040 was to place pandarapattam lands on the same footing as ryotwari lands in the neighbouring province of Madras, and wo have no doubt that it succeeded in doing so. If the relations between the holder of a land and the Government are placed on the same footing as the relations between the holder of ryotwari land and the Government, it seems to us that it necessarily follows that the land is held under ryotwari settlement–it is the factual relationship and not the label that counts and no concept of legal rights is involved. ….

Per KK Mathew, J.

  • 17……. To my mind the terms of the Proclamation leave no doubt that full proprietary interest has been conferred upon the holders of pandarapattom lands. ….Clause (2) is the pivotal clause; and it provides that the ryots holding such lands may regard them fully private, saleable and otherwise heritable and transferable property. Clause (4) guarantees the continued undisturbed enjoyment of the land so long as the appointed assessment is paid. Clause (6) makes it clear that the lands will be resumable by the State like other jenmom or private land only for public purpose and when resumed for such purposes compensation will be paid by the Sirkar not only for the improvements but also for the full market value of the property. Clause (7) provided that the rights conferred by the Proclamation would not in any way affect the right of the Sirkar to regulate land tax or to resume escheats or to confiscate the property of criminals. Clauses (6) and (7) are very significant. What are reserved to the Sirkar by Clauses (6) and (7) are not anv proprietary rights in the land. The rights which inhere in every sovereign in respect of every property within his jurisdiction like eminent domain, the right to impose or regulate tax, to resume escheats, to confiscate property of criminals, are alone reserved by those clauses. They not only do not derogate from the grant of full proprietary interest made by Clauses (1), (2) and (4), but would highlight that no proprietary rights have been reserved to the State. If the sovereign was careful to reserve to himself in respect of these lands only those rights which appertain to sovereignty and not any right which relates to dominium, that is a clear indication that no right relating to dominium was intended to be retained by the Sirkar. Even if the clauses were absent, the Sirkar would have those rights as they appertain to sovereignty and not to dominium. In other words, if by way of abundant caution the clauses reserved to the Sirkar only rights which appertain to sovereignty, there was absolutely no reason why the rights, if any, relating to dominium or ownership were not reserved, if the sovereign intended to retain any right in respect of the lands.….. I think, a holder of pandarapattom land satisfies even the orthodox definition   of ownership by Austin.   Austin defines the right of ownership as a–“right indefinite in point of user, unrestricted in point of disposition, and unlimited in point of duration, over a determinate thing.” (See ‘Jurisprudence’ by Austin, 3rd Edn., page 817.) 
  • 19. The basic concept of ‘estate’ is that the person holding the estate should be the proprietor of the soil and should be in direct relationship with the State by paying land revenue to it except where it is remitted in whole or in part. See AIR 1962 SC 694. As I have said the pattom Proclamation conferred full proprietary rights on tenants of pandarapattom lands, and they are also in direct relation with the State by paying land revenue. Since there is no definition of the word ‘estate’ in the existing local law relating to land tenure, pandarapattom land is the local equivalent of ‘estate,’ because its attributes conform to the basic concept of the term.”

Though Rev. Fr. Victor Fernandez v. Albert Fernandez, 1971 KLT 216: AIR 1971 Ker 168,  was overruled in Velayudhan Vivekanandan v. Ayyappan  Sadasivan, ILR 1975-1 Ker 166; 1975  KLT 1, it was without probing into the question – whether the Proclamation conferred, on the tenants, absolute proprietary rights or not. It was observed as under:

  • “4. The Full Bench decision in Rev. Fr. Victor Fernandez v. Albert Fernandez, 1971 KLT 216: AIR 1971 Ker 168, also, I think with great respect, has not been correctly decided. The document that was considered therein was styled as ‘Ottikuzhikanam” ….   The Full Bench observed that the words, in the operative portion of the document, would put it beyond any doubt that the property was given for enjoyment.”

Effect of Travancore Govt. Leases AFTER Royal Pattom Proclamations of 1040 and 1061

Now a question arises: What is the impact of 1040 and 1061 (1886) Proclamations over the ‘Government Land Leases’ (Pandaravakappattoms) made after 1061 (1886)? Do such leased lands qualify as “estate” under Article 31A of the Constitution?

The legitimate answer is that the lands leased out (by the Government) after 1061 (1886) do not acquire the rights of ‘permanency of tenure’ or attain the ‘proprietary interest’ conferred by the Pattom Proclamations of 1040 and 1061. If such rights of permanency and ‘proprietary interest’ are axiomatically conferred as a matter of course, the result would be that the Government cannot ‘lease’ lands (after the Proclamations), for, the lease character would be lost at the moment it is made.

In Rev. Fr. Victor Fernandez v. Albert Fernandez (five Judge Bench), 1971 Ker LT 1, AIR 1971 Ker 168 (Per PT Raman Nayar, CJ, T Krishnamoorthy Iyer, P Unnikrishna Kurup, JJ.), concluded that the land covered by the Royal Proclamations of 1040 and 1061 were “estates” falling under Art. 31A of the Constitution. It was on the finding that the Proclamation “secured permanency of tenure”, and “proprietary interest” in the soil. It was observed as under:

  • “7. It is impossible to accept the contention advanced on behalf of the plaintiff in this case that,even after the Proclamation of 1040, the holders of these lands had no proprietary interest whatsoever in the soil and remained tenants in the strict sense of that term, with only the right of enjoyment, the only difference being that they secured permanency of tenure, the Government still remaining the full and absolute proprietor of the soil.”

Therefore, there is a clear difference between leases made before and after the Proclamations; and the rights conferred by the Proclamations do not apply to leases made after the Proclamations.

The nature of Pandaravaka lands is explained in the Travancore Land Revenue Manual (Revised Edition), Volume Ill, Part I, page 6 as under:

  • “The proclamation of 1040 converted them into permanent leases and conferred on the holders thereof permanent rights of occupancy, heritable and alienable.” (Quoted in: Padmanabharu Govindaru  v. The State of Kerala, AIR 1963 Ker 86.)

There is no scope for arguing that the future “Pandarappattoms” (future tenancy by Government) was ‘made void’ by the proclamation; or in other words, that the 1040 Proclamation “binds” the future Government tenancies also.

1040 Proclamation and ‘Grant‘ of Plantation Land by Travancore Government

In George A. Leslie v. State of Kerala, AIR 1970 Ker 21 (K. K. Mathew, J.), it was argued that benefits of 1040 (1865) Travancore Pattom Proclamation were also entitled to by the Grantees of plantation land. After analysing the provisions of the grant deed it was held that Proclamation of 1040 (1865), which conferred full rights on tenants of pandarapattom land, did not apply to grant-lands.

George A. Leslie v. State of Kerala – AIR 1970 Ker 21

It was observed in this decision as under:

  • “Ext. P-l is a grant made under the Travancore Regulation II of 1040 and the Rules for the sale of Waste Land on the Travancore Hills dated 24th April 1865. It conferred a heritable and transferable interest in the grantees of the land comprised in it. Clause 5 in Ext. P-l, which is identical with Section 5 in Form A of the Rules for the sale of Waste Land on the Travancore Hills, is the relevant provision for deciding this question. It provides:
    • “Grantees can appropriate to their own use within the limits of the grant all timber except the following and such as may hereinafter be reserved, namely, Teak, Gole Teak, Blackwood, Ebony, Karcomthaly, Sandalwood; should they carry any timber without the limits of the grant, it will be subject to the payment of kuttikanom or customs duty or both, as the case may be, in the same way as timber ordinarily felled”.
  • 10. We think that if title to the reserved trees passed to the grantees, a provision of this nature would have been quite unnecessary. There was no purpose in stating that the grantees will be free to appropriate the reserved trees for consumption within the limits of the grant, if title to the trees passed to the grantees; the provision is a clear indication that the grantees were allowed to cut and appropriate the reserved trees for consumption within the limits of the grant as a matter of concession.”

It was pointed out –

  • Travancore Pattom Proclamation of 1040 (1865), which conferred full rights on tenants of pandarapattom land. They have no application to the land or trees comprised in grants for cultivation of coffee or tea (under Rules for the sale of Waste Land on the Travancore Hills dated 24th April 1865).

The above findings of Mathew, J. was approved the Apex Court in State of Kerala v. Kanan Devan Hills Produce Co. Ltd., (1991) 2 SCC 272, under the following words:

  • “We agree with the interpretation given to the clause by Mathew, J. and hold that the respondent- company did not acquire absolute proprietary rights over the Concession Area or the trees and the timber therein.”

The effect of Grant deeds were also considered in the following two important cases by the Supreme Court-

  • Kannan Devan Hills Produce Co. Ltd. v.  The State of Kerala, AIR 1972 SC 2301
  • State of Kerala v. Kanan Devan Hills Produce Co. Ltd., (1991) 2 SCC 272

Kannan Devan Hills Produce Co. Ltd. v.  The State of Kerala, AIR 1972 SC 2301

As detailed above, the Constitution Bench of the Supreme Court, in Kannan Devan Hills Produce v. The State of Kerala, AIR 1972 SC 2301 held that Kenan Devan Hills Concession (on grant deeds) fall within the expression “Janmam right” vested with Sircar. The State of Kerala made an Act – the Kannan Devan Hills (Resumption of Lands) Act, 1971, to “vest” the possession of the land remained in the possession of the Kannan Devan Hills Produce Co. Ltd.

According to the petitioner Company, ‘it has at all times been holding, cultivating, enjoying and dealing with the Concession Land as the absolute, owner thereof’. According to the State, this land is dealt with under this heading – Pandaravaka Lands, i.e. lands belonging to the Sircar, and that it was only “granted” to the company for ‘coffee cultivation’. The Apex Court upheld the contention of the Government.

State of Kerala v. Kanan Devan Hills Produce Co. Ltd., (1991) 2 SCC 272

With respect to the same property  it was held in State of Kerala v. Kannan Devan Hills Produce Co. Ltd., (1991) 2 SCC 272as under:

  • “The Trial Court in a detailed and well-reasoned judgment dismissed the suit of the company. The Trial Court on the interpretation of First Concession (Exhibit P- 1), Second Concession (Exhibit P-2), deed of ratification (Exhibit P-62) and the Government agreement with the Society dated August 2, 1866 (Exhibit P-64) came to the conclusion that the company did not acquire absolute proprietary rights over the Concession Area or the trees and timber in the said area. It was held that the Poonjar Chief had only conveyed heritable and transferable possessory rights over the Concession area to the grantee. It was also held that absolute rights over the trees and timber in the Concession Area did not pass to the grantee and it had only the right to use and remove timber subject to the restrictions imposed in the deeds of conveyance/ratification.”

It is observed:

  • “An identical clause in another grant entered into by the Travancore Government came for consideration before a Full Bench of the Kerala High Court in George A Leslie v. State of Kerala, [1969] K. L.T. 378, K. K. Mathew, J. (as the learned Judge then was) interpreted the clause as under:
    •  We think that if title to the reserved trees passed to the grantees, a provision of this nature would have been quite unnecessary. There was no purpose in stating that the grantees will be free to appropriate the reserved trees for consumption within the limits of the grant, if title to the trees passed to the grantees; the provision is a clear indication that the grantees were allowed to cut and appropriate the reserved trees for consumption within the limits of the grant as a matter of concession.”
  • “We agree with the interpretation given to the clause by Mathew, J. and hold that the respondent- company did not acquire absolute proprietary rights over the Concession Area or the trees and the timber therein.”

It is observed further:

  • “It was further held by Mathew, J. (in George A. Leslie v. State of Kerala, 1969 KLT 378) that kuttikanam being the governments share of the value of the trees owned by the government it has the power to fix the value of the trees. We agree with the reasoning and conclusions reached by Mathew, J.”

The Apex Court upheld and approved “the judgment and findings” of the Trial Court.

Effect of Travancore Govt. Leases after Royal Pattom Proclamations of 1040 and 1061

During the second half of the 19th century several Royal Proclamations were promulgated with a view to confer rights in the land to the tenants who were the real cultivators. Majority of the people were engaged in agriculture; but the lands belonged to Jenmies (Sircar, Brahmins or Devaswoms). The cultivators held the land under lease arrangement known as Pattom, Otti, Inam and Viruthi etc. One of the important Regulations came in the line of agrarian reforms was the Royal Proclamation of 1040 ME (1865 AD). It pertained to Pattom (lease) tenements created (by Sircar) on Sirkar lands known as Pandaravaka lands. It is exalted as the Magna Carta of peasants of Travancore it being led to conferring land to tillers, step by step.

Paragraph 9 of the Royal Proclamation of 1061 (1886) brought in further radical changes as regards Pandarapattam lands. It said as under:

  • ““these lands were originally the absolute property of Government, and the tenants were mere tenants-at-will; but, by the Royal Proclamation of the 21st Edavam 1040, Government generously waived all right to these lands, and declared them to be the private, hereitable, saleable property of the holders.”.”

Section 22 of the Settlement Proclamation of 1061 (1886) made further changes in land tenure.

Those changes were:

  • (1)   no debt shall be recognised as due to the holder;
  • (2) no interest shall be deducted from the Pattom on such debt;  
  • (3) no reduction of debt or a corresponding enhancement of the Sirkar demand shall be made when such properties were transferred by sale.
  • The properties held on the tenures in question shall be recognised as so many favourably assessed lands or Inams and confirmed to the holders as such.

Clause 7 of Section 24 of the Proclamation provided as under:

  • “There shall be no further interference on the part of the Government with these free holds, except such as might be necessary for the punctual realization of the quit rent payable”. (Quoted in: Padmanabharu Govindaru  v. The State of Kerala, AIR 1963 Ker 86.)

Now a question arises: What is the impact of 1040 and 1061 (1886) Proclamations over the ‘Government Land Leases’ made after 1061 (1886)? Do such leased lands qualify as “estate” under Article 31A of the Constitution?

The legitimate answer is that the lands leased out (by the Government) after 1061 (1886) do not acquire the rights of ‘permanency of tenure’ or attain the ‘proprietary interest’ conferred by the Pattom Proclamations of 1040 and 1061. If such rights are axiomatically conferred as a matter of course, the result would be that the Government cannot ‘lease’ lands (after the Proclamations), for, the lease character would be lost at the moment it is made.

In Rev. Fr. Victor Fernandez v. Albert Fernandez (five Judge Bench), 1971 Ker LT 1, AIR 1971 Ker 168 (Per PT Raman Nayar, CJ, T Krishnamoorthy Iyer, P Unnikrishna Kurup, JJ.), concluded that the land covered by the royal Proclamations of 1040 and 1061 were “estates” falling under Art. 31A of the Constitution. It was on the finding that the Proclamation “secured permanency of tenure”, and “proprietary interest” in the soil. It was observed as under:

  • “7. It is impossible to accept the contention advanced on behalf of the plaintiff in this case that, even after the Proclamation of 1040, the holders of these lands had no proprietary interest whatsoever in the soil and remained tenants in the strict sense of that term, with only the right of enjoyment, the only difference being that they secured permanency of tenure, the Government still remaining the full and absolute proprietor of the soil.”

Devaswom Proclamation, 1922 & 1948 and Formation of Dev. Board

The History of Governmental Administration of Devaswoms mark four phases. They are:

  • (i) Administration as the Land Revenue Department – started in 987 ME (1811-1812 AD) under the edicts of Col. Munro.
  • (ii) Administration as the Devaswom Department – from 1922 Devaswom Proclamation.
  • (iii) Direct Administration by Maharaja by the 1948 Proclamation assuming control of Devaswoms and Devaswom Department.
  • (iv) Administration under Devaswom Board – from 1950 in accordance with the enactment, Travancore-Cochin Hindu Religious Institutions Act, 1950.

Administration ‘AS’ the Governemnt Departments

By virtue of ‘organising’ the Devaswoms “as” the Land Revenue Department (from 987 ME) and “as” the Devaswom Department (by Proclamation, 1922), Devaswoms mentioned in the schedule thereof were treated as the ‘property of the State’.

The history as to the formulation of the Devaswom Proclamation, 1922, is given in  M. Muraleedharan Nair v. State of Kerala, AIR1991 Ker 25. It was laid down:

  • The Hindu temples in the State of Travancore were mostly under private management called Ooralars or Karakars.
  • As those bodies were found mismanaging the institutions, Col. Munro decided in 987 ME (1811-1812 AD) that the State should assume control over them.
  • With a view to secure better management of the Devaswoms, the Government appointed a committee to report upon the assumptions of those Devaswoms, the feasibility of separating their administration from the Land Revenue Department and cost if a separate department be deemed desirable.
  • The Commitlee, recommended that the administration of the Devaswom should be separated from the Land Revenue Department and entrusted to a distinct agency.
  • The Government of Travancore after taking necessary legal opinion came to the conclusion that creation of a separate department exclusively to the administration of Devaswoms was necessary.
  • Considering that it is the solemn right and duty of the Government to maintain efficiently and in good condition the Hindu Religious Institutions the State the Travancore Government issued the Devaswom Proclamation on 12th April, 1922 corresponding to 30th Meenom, 1097.
  • Section 7 of the Proclamation is as under:
    • “7.(1) Our Government may for the better and more efficient management and more effective control of the Devaswoms mentioned in the schedule organised a Devaswom Department of the State consisting of such number of officers and other servants as they think fit.
    • 2. The expenditure in connection with the said Department shall, notwithstanding anything contained in Sections 3 and 4, be not out of the general revenue of the State.”
  • The Devaswom Department has become a part of the Government Department.

Administration ‘UNDER’ the Travancore Devaswom Board

The history shows that a “material change” was brought forth by the formulation of the Travancore Devaswom Board. It is laid down in  M. Muraleedharan Nair v. State of Kerala, AIR 1991 Ker 25, as under:

  • The Maharaja did not want to leave the administration of the Devaswoms to the State Government in the new set up. Therefore on 10-8-1123 (23-3-1948), yet another proclamation was issued by which the Maharaja assumed control of Devaswoms and Devaswom Department of the Government.
  • A material change also made in respect of funds from which expenditure. It was also provided that expenditure to be made not from general revenue but only from Devuswom fund.
  • Thereafter when Travancore-Cochin States were integrated it was provided by Section 8(c) of the Covenant that the administration of the Devaswoms, Hindu Religious Institutions and Endowments and their properties and funds would vest with effect from 1-8-1949 in a Board known as Travancore Devaswom Board.
  • The Hindu Religious Institutions Ordinance 10 of 1124 was promulgated which came into force on 1-8-1949. Before expiry of the period of Ordinance, Act 15 of 1950, namely the Travancore-Cochin Hindu Religious Institutions Act, 1950 was enacted.
  • Section 3 of the Act provided (as regards the formation of the Travancore Devaswom Board) as under:
    • “The administration of Incorporated and unincorporated Devaswoms and of Hindu Religious Endowments and all their properties and funds as well as the fund constituted under the Devaswom Proclamation, 1097 M. E. and the Surplus Fund Constituted under the Devaswom (Amendment) Proclamation, 1122 M. E. which were under the management of the Ruler of Travancore prior to the first day of July 1949, except the Sree Padrnanabhaswamy Temple, Sree Pandaravaga properties and all other properties and funds of the said temple, and the management of all institutions which were under the Devaswom Department shall vest in the Travancore Devaswom Board.”
  • The power of nomination given to the Ruler of Travancore was taken away and was given to the Council of Ministers by Travancore-Cochin Hindu Religious Institutions (Amendment) Act 70 of 1974. Thereafter, of the three Hindu members of the Board, two will have to be nominated by the Hindus among the Council of Minister. The power given to Rajpramukh was subsequently vested in the Governor.

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Land Tenures, and History of Land Derivation, in Kerala

Saji Koduvath, Advocate, Kottayam.

  • Part I: Ancient Historyof the Land of Kerala
  • Part II: Classification of lands in Travancore
    • Land-Classification in Cochin
    • Malabar‘Jenmi’, ‘Jenmom’ and ‘Ryotwari System’
  • Part III: Land Reform Measures that Shaped Kerala
  • Part IV: Art. 31A of the Constitution of India and ‘Estates’

History – in Nutshell

  1. Mythology of Parasurama: According to the prevailing mythology, Parasurama, the founder of Kerala, gave lands to Brahmins. The lands belonging to Brahmins constituted Jenmom (Janmom/Genmom) lands.
  2. Jenmies: In the course time, the Brahmins and prominent Nairs came-out as the territorial lords. They were called Jenmies. The rest of the people cultivated the lands under these Jenmies.
  3. Devaswom lands: The Jenmies endowed lands to temples, and thus emerged the Devaswom lands.
  4. Devaswom and Brahmaswom lands: By 8th century, the entire cultivable lands came under (i) the Devaswoms or temples (Devaswom lands), and (ii) the Brahmin Janmies (Brahmaswom lands).
  5. Sirkar a Jenmi: Original Janmam-holders were Brahmins (following Parasurama). By the act of Brahmins, Devaswoms also became Janmies.
    • In course of time, Sirkar itself became one of the Jenmis, it  having come to possess Jenmom lands (Brahmaswom and Devaswom) by gift, purchase, escheat, confiscation and other ways.
  6. Period of Marthandavarma: In Travancore, during the period of Marthandavarma, the entire assets owned by the King were regarded as the property that belonged to the Treasury or Offertory (Bhandaram).
  7. Travancore Proclamation of 1040 (1865):In Travancore, by virtue of Proclamation of 1040 (1865), all Sirkar (or Pandaravaga) pattom-lands were converted into full proprietary-lands.
  8. Cochin Settlement Proclamation of 1080 (1905) : In Cochin, Settlement Proclamation of 1080 ME (1905 AD) conferred the holders of Pandaravaka Verumpattom lands ‘full rights to the soil of the lands’.
  9. Settlement of Travancore: The survey and settlement of Travancore were finalised in 1910.
  10. Ryotwari-tenures: In Malabar (formed part of the erstwhile Madras province), two types of tenures were important: landlord-tenures and the ryotwari-tenures (tenancy on Govt. land).
  11. British Government, Permanent settlement: The permanent settlement (to fix revenue to be raised from land) was introduced by the British Government in the Malabar area in 1802.
  12. Ryotwari Pattadar a Tenant: Under the ryotwari system, land was given on lease by the government to the ryot (tenant or cultivator) under a patta. A ryotwari pattadar was only a tenant.
  13. Sakthan Thampuran, Cochin: Cochinwas brought under the centralised administration by the King, Rama Varma, popularly known as Sakthan Thampuran (1790 – 1805).
  14. Pandaravaka lands: During the second half of 18th century major portion of the lands, in both Travancore and Cochin kingdoms, were brought under the respective Government administration and these lands were called Sircar or Pandaravaka lands.
  15. KLR Act – socio-economic legislation: Except Kerala, no other state in India has implemented the socio-economic legislation like Kerala Land Reforms Act to safeguard the interest of the agricultural classes.
  16. The Kerala Land Reforms Act, 1963 made Kerala change tremendously.

Classification of Lands in Travancore

  • The lands were classified under 8 heads in the Travancore Land Revenue Manual (1915). 
  • They were –
    • (i) Edavagas;
    • (ii) Registered lands;
    • (iii) Purambokes;
    • (iv) Tharisu or assessed waste;
    • (v) Thanathuchitta lands;
    • (vi)  Reserved Forests;
    • (vii) Reserved lands or proposed reserves; &
    • (viii) Unreserved lands.

Travancore Land-Tenures

  • According to the Travancore Land Revenue Manual, (1915), the tenures fall under two main heads:
    1. Sirkar or Pandaravaga (By virtue of Proclamation of 1040 (1865), all Sircar-pattom-lands were converted into full proprietary-lands);
    2. Janmam (Janmam includes Devaswom & Brahmaswom.)
  • In settlement (1910), numerous tenancy-tenures had been recognized. For practical purposes, as per the Travancore Land Revenue Manual, the tenures were classified as under:
    • 1. Sirkar or Pandaravaga
    • 2. Sirkar Devaswom vaga
    • 3. Kandukrishi
    • 4. Sreepadam vaga
    • 5. Sree pandaravaga
    • 6. Janmam (Includes Devaswom, Brahmaswom)

Jenmom Lands

In Travancore State Manual (Vol. III, page 315) while dealing with freehold jenmom lands (in the province of Poonjar Chief) it is said as under:

  • “The peculiarity of these Jenmom properties is that their owners have absolute control over them and that they take from the ryots the pattern or rent as well as the Rajabhogam, which in the case of other lands would go to the State and that the Devaswom and Brahmaswom lands in these tracts pay their Rajabhogam or quit rent to these Chiefs instead of to the Sirkar.” (See: Godavarma Valia Raja v. Bhoothi Swamiyar, AIR 1953 TC 408; ILR 1954 TC 109)

Land-Classification in Cochin

  1. Pandaravaka lands – The lands owned by the State, or State having the jenmom or proprietary right. (Settlement Proclamation of Cochin of 1080 ME (1905 AD) conferred the holders of Pandaravaka Verumpattom lands ‘full rights to the soil of the lands‘.)
  2. Puravaka land (“outside land”)- The land over which the proprietary right (jenmam right) was vested with private individuals or public institutions (or land in which janmam right did not vest in the Sarkar, but, “outside”).
    • Tenancy in the aforesaid lands: Verumpattom – This was simple leasehold. It was the chief land system of tenancy. By a series of legislative enactments, tenants gained occupancy rights in the lands held by them.

Ryotwari System in Malabar

  • Ryotwari was a system of land revenue collection introduced by Sir Thomas Munro, Governor of Madras, in 1820. The Government began to collect revenue or rent directly from the cultivators or tenants, bypassing the Zamindars or landlords. Subsequently, it was introduced in several other parts of British India.
  • Actually, it was an improved system of revenue collection successfully practiced by the Mughals, who reigned in northern India, just before the British.
  • Munro actually reduced the rent that tenants had previously paid to landlords; that is, from one-half to one-third of the produce; however, it was still considered exorbitant.

Ryots were Tenants; the sum payable was essentially ‘Rent’

While the payments made by the ryots were termed either ‘assessment’ or ‘rent’. But, the legislative enactments in this area demonstrate a distinct legal preference for the term ‘rent’ rather than the more administrative notion of ‘assessment’.

Madras Estates Land (Reduction of Rent) Act, XXX of 1947, reads  as under:

  • “An Act to provide for the reduction of rents payable by ryots in estates governed by the ‘(Tamil Nsdu] Estates Land Act, 1908, approximately to the level of the assessments levied on lands in ryotwari areas in the neighbourhood  and for the collection of such rents exclusively by the State Government.” (Referred to in: State of Madras v. Kannepalli Chinna Venkata Chalamaya Sastri, AIR 1962 SC 1687; 1963 1 SCR 155; Shree Raja Kandregula Srinivasa Jagannatha Rao v. State of AP, AIR 1971 SC 71; 1969-3 SCC 71).

Madras District Boards Act (Madras Act XIV of 1920) Section 79 reads as under:

  • “79. The annual rent value shall, for the purposes of S. 78, be calculated in the following manner: (i) In the case of lands held direct from Government on ryotwari tenure or on lease or licence, the assessment, lease amount, royalty or other sum payable to Government for the lands, together with any water-rate which may be payable for their irrigation shall be taken to be the annual rent value…..” (Quoted in: H. R. S. Murthy v. Collector Of Chittoor: AIR 1965 SC 177; 1964-6 SCR 666)

It is also clear from 1040 ME (1865) Pattom Proclamation of Travancore (considered as a Magna Carta issued by the King to the cultivators). It begins as under:

  • “Whereas we earnestly desire that the possession of landed as well as other property in Our territory should be as secure as possible; and whereas We are of opinion that, with this view, Sirkar Pattom** lands can be placed on a much better footing than at present so as to enhance their value; We are pleased to notify to Our ryots: …”
  • ** Note: ‘Sirkar‘ means Government; ‘Pattom‘ means rent.

In Travancore State Manual (Vol. III, page 315) it is stated as under:

  • “The peculiarity of these Jenmom properties is that their owners have absolute control over them and that they take from the ryots the pattern or rent as well as the Rajabhogam …. “

Malabar was a part of erstwhile Madras Presidency, ruled by British. The reign of British traces its history from the establishment of the East India Company.

East India Company was a joint-stock company that was founded in 1600. It was formed to trade in the Indian Ocean region, initially with the East Indies (South Asia and Southeast Asia), and later with East Asia. The company gained control of large parts of the Indian subcontinent and Hong Kong. It eventually came to rule large areas of the Indian subcontinent, exercising military power and assuming administrative functions.  The company initiated the beginnings of the British Raj in the Indian subcontinent.

By 1647, the company had 23 factories and settlements in India. Many of the major factories became some of the most populated and commercially influential cities in Bengal, including the walled forts of Fort William in Bengal, Fort St George in Madras, and Bombay Castle (Wikipedia).

Land Law in Madras Presidency, BR Chakravarthy

‘Land Law in Madras Presidency’, BR Chakravarthy, 1927, page 31 reads as under:

  • “When the East India Company assumed control over the administration of the province, the revenues of the land were being collected mainly in two ways. The first was that people going by the name of Zamindars and poligars, collected the revenue from the ryots and paid a certain percentage of the collection to the government, retaining the balance for themselves; as remuneration for their services; the second was that the Sirkar collected the land revenue directly. But even in the latter case, instead of employing a gradation of officers, for collecting the revenue from each individual ryots, as we have it now in the case of ryotwari lands, the government farmed out the revenues of single villages or groups of villages to individuals or to village communities leaving the task of internal collection to those intermediate agents called renters. This system offered a splendid opportunity to many a speculator to enrich themselves at the cost of the poor cultivators. Thus, there existed in general an intermediate agency in one form or other.
  • In the system of collecting revenue by middlemen, there were two important defects.
  • Firstly, there was no limit to the demand made by the government. They went on increasing their demand from year to year, without any regard whatever to the conditions .and prosperity of the cultivators.
  • Secondly, there was nothing to prevent the Zamindars or middlemen from rack-renting the tenants under their control; or whenever the government raised its demand, the middlemen in their turn began to squeeze the tenants to the utmost, and in their anxiety to see, that they incurred no loss from their own pockets, but had a decent fraction of the collections left for them after paying the government its due, they more often than not, made the position of the ryots simply intolerable.”

Janmam Right in Jenmi‘ in Malabar

Different from riotwary settlement in other parts of Madras Presidency

In ‘Land Law in Madras Presidency’, BR Chakravarthy, 1927, page 372, it is stated as under:

  • “The land Revenue settlement in Malabar differs from the ordinary riotwary settlement in the rest of the presidency in that in Malalabar the existence of lit landlord between the state and the actual cultivator is recognised in the theoretical distribution of the produce, on which- the rates of assessment are based. For instance, in the case of wet lands, from the commuted value of the annual grain out-tum a deduction of 15 per cent is first made for vicissitudes of season and unprofitable areas; then a further deduction is made for cultivation expenses, of the balance is set apart for the cultivator’s share; and 6/10 of the remainder is fixed as the assessment. The calculation with respect to dry lands is similar and is even more lenient.
  • The reason of this difference from the rest of the presidency can be understood only if we bear in mind the essential distinction, or at any rate what according government constitutes an essential distinction, in regard to private ownership of land between Malabar and the cast of the presidency. The right of ownership in land in Malabar is termed janmam and is said to comprise the tall and complete ownership in land; so that the owner of janmam right or jenmi as he is called, is absolutely entitled not merely to the soil, but to all things above and below it from the highest point of heaven to the lowest depths of the earth. At one time, there was considerable dispute on this question in regard to Malabar as it was with regard to the other parts of the presidency. But it was ultimately accepted by the Government itself that in Malabar, at least, the private ownership mast be taken to exist in the jemnis and that the government could not claim any such right.”

Lands held under Ryotwari tenure after Ryotwari Settlement (1934)

In Kannan Devan Hills Produce v. State of Kerala, AIR 1972 SC 2301; 1972-2 SCC 218, it was pointed out that it was held by the Full Bench of the Kerala High Court in Sukapuram Sabhayogam v. State of Kerala, AIR 1963 Kerala 101 that the lands, after 1934, were ‘held under Ryotwari tenure after the introduction of the Ryotwari Settlement in the Malabar area of Kerala State’.

  • Note: The expression ‘estate’ in Article 31A (relating to ‘acquisition’ of land etc.) included ‘ryotwari’ land also by virtue of the Seventeenth Amendment of the Constitution on June 20, 1964 with retrospective effect.

Lease by Government, under Pattas

  • Under the ryotwari system, land was given on lease by the government to the ryot (or cultivator) under a patta. A ryotwari pattadar was not a proprietor of land in its full sense, but only a tenant.

Our Apex Court, in Threesiamma Jacob v.Geologist, Dptt. of Mining & Geology, AIR 2013 SC 3251; 2013-3 KLT 275; 2013-9 SCC 725, it is held as under:

  • “26. Coming to the ryotwari tenures, this Court [In Karimbil Kunhikoman v. State of Kerala, AIR 1962 SC 723] held that they were governed by the standing orders issued from time to time by the Revenue Board. Under the ryotwari system land was given on lease by the government to the ryot under a patta. Noticing the salient features of the ryotwari system as explained in various authoritative works, this Court opined that “though a ryotwari pattadar is virtually like a proprietor and has many of the advantages of such a proprietor”, such pattadar was never considered a proprietor of land but only a tenant.” (Also quoted in Raphy John v. Land Revenue Commissioner, Thiruvananthapuram, 2022-3 KLT 679.)

Ryotwari Land included in ‘Estate’ by Constitutional Amendment

In S. Thenappa Chettiarv. State of Tamil Nadu, AIR 1986 SC 1117, it was held, following Khajamian Wakf Estates v. State of Madras, AIR 1971 SC 161, that the expression ‘estate’ in Article 31A included ‘ryotwari‘ land also by virtue of the Seventeenth Amendment of the Constitution on June 20, 1964 with retrospective effect.

‘Jenmam’ (freehold right) is ‘Estate’ within Article 31A

  • In K. K. Kochunni v. States of Madras and Kerala, AIR 1960 SC 1080 and Govindaru Nambooripad v. State of Kerala, 1962 Ker LT 913 :  AIR 1963 Ker 86 it was held that janmom right was the freehold right with ‘proprietary interest’.
  • Note: ‘Freehold’ – “In common law jurisdictions such as England and Wales, Australia, Canada, and Ireland, a freehold is the common mode of ownership of real property, or land, and all immovable structures attached to such land. It is in contrast to a leasehold, in which the property reverts to the owner of the land after the lease period expires or otherwise lawfully terminates” (Wikipedia). It doesn’t mean that such lands are free from payment of tax or revenue to the Government.

Pandaravaka Verumpattom in Cochin &Pandarapattom‘ in Travancore – ‘Estate’ under Article 31A

  1. In Purushothaman Nambudiri v. State of Kerala, AIR 1962 SC 694, the Constitution Bench of Supreme Court held that in the erstwhile Cochin State, Pandaravaka Verumpattom were proprietors of the lands and hold the lands subject to the liability to pay the assessment to the State, and therefore Pandaravaka verumpattom could be regarded as local equivalent of an ‘estate’* under clause (2) of Article 31A of the Constitution.
    • * (Note: Estate denotes, generally, property ownership)
  2. Five-Judge-Bench in Rev. Fr. Victor Fernandez v. Albert Fernandez, 1971 Ker LT 1: AIR 1971 Ker 168, held that Pandarapattom land in the Travancore area of the Kerala State satisfies even the orthodox definition   of ownership by Austin, and was ‘estate’ within the meaning of Article 31A(2)(a) of the Constitution.

Part I

Ancient History of Land of Kerala

Ancient Kerala had a peculiar culture of its own. It experienced an isolated life, protected by the Western Ghats on east and Arabian Sea on west. This land of mountains and forest was divided by a good number of rivers. The term Kerala was first epigraphically recorded as Ketalaputo in a 3rd century BCE rock inscription by emperor Ashoka (Encyclopaedia Britannica & Wikipedia).

The topographical situations made small and scattered villages with their own leaders or ‘Naduvazhis’ (Local Chiefs).  The people here collected Hill Produces and tried agriculture.  The calm gulf of Arabian Sea with favorable wind brought several merchants from Persian countries which were highly rich at that time.

The Arian Invasion

The Arian invasion from North India, through the eastern passages in Western Ghats, started in the 3rd century.  It made considerable change in the life and style of the people of medieval Kerala. By 8th century the Aryans made a complete change in the social scenario. Brahmins, the priestly class, predominated the emigrants.  They slowly caught hold of superiority in all fields of life. They were superior in intelligence, and people with ‘knowledge and experience’ in all walks of life. Brahmins made temples and attracted people there.

Rise of Brahmin Janmies

Aryans subjugated the minds of the native people including the rulers and made them consider that Brahmins were the servants of the God and deity. They introduced paddy cultivation and led people do agriculture in a large scale.  The fascinating techniques taught by the Aryans miraculously increased the agricultural productivity. They succeeded in getting  lands endowed by the Rulers to the temples and Brahmins in the entire erstwhile Travancore, Cochin and Malabar areas. They also made people offer the agricultural produces, and part of their income, to the temple.  Temples were centers of collection of wealth. It also became the centers of distribution of food, and other articles.  They were centers of learning and art also.

Devaswom Lands and Brahmaswom Lands

The Kings and other ‘Naduvazhis’ relied on Brahmins to carry on their administration in a successful manner. Brahmins or their families became the administrators or ‘Ooralers’ of the temples.  Almost the entire cultivable lands were under the Devaswoms or temples (Devaswom lands) , and the Brahmin Janmies (Brahmaswom lands). A myth was rooted, by passage of time, in the minds of people, that this land was one reclaimed by Parasurama from Arabian Sea and that he entrusted this land to Brahmins. It was also believed that Parasurama was a great warrior and that he conquered this land and appointed Brahmins as the territorial lords.  Slowly, the Aryans, who monopolised the whole of the land, began to rule the territory, directly or indirectly.

Jenmom lands and Exalted position of Brahmins

The Brahmins and prominent Nairs were the territorial lords. The owners of these lands were called Jenmies; and the lands belonged to them were known as Jenmom lands. The Sirkar (King) was the greatest Jenmi. Apart from original Jenmom lands, the rulers and the King obtained land by gift, purchase, escheat, confiscation etc.

The exalted position of Brahmins in the society increased day by day, during the medieval period.  A major portion of the cultivable land remained under the ‘Janmam’ of Brahmins.

Malabar and Chera Kingdom

Malabar was used to denote entire costal land from Goa to Kanyakumari, in ancient times, until the British limited it to the portion of land confined to northern part of present Kerala. During ‘Middle Ages’, till 12st century, entire Malabar remained under Chera Kingdom (from 9th Century). After breaking up of this Kingdom, the chieftains of the respective region proclaimed their political independence. They included the Zamorins of Calicut and Kolathiri; rulers of  Perumbadappu Swaroopam (Later, Kingdom of Cochin),  Naduvazhis of Venad, Valluvanad etc.

The land-scenario heftily changed on the advent of Dutch (1663–1773) and English (1773- 1947). The permanent settlement (fix revenue to be raised from land) was introduced by the British Government in the Malabar area in 1802. It obligated the jenmis to pay revenue to the State.  But did not in any way affect their proprietary rights in the lands. (Balmadies Plantations Ltd. v. The State of Tamil Nadu, AIR 1972 SC 2240; Thressiamma Jacob v.  Geologist, Dptt. of Mining, 2013 (9) SCC 725).

Malabar Compensation for Tenants Improvements Act, 1887 & its Repeal in 1901

In the “Report of the Malabar Tenancy Committee, 1940, Volume I” (in which EMS Namboothiripad, MLA was a member) it is observed –

  • “14. The question of land tenures first attracted the serious attention of the Government because of the Moplah outbreaks which assumed grave proportions from 1836 onwards and continued to mar the tranquillity of Malabar down to recent times.”

The Report narrated the following executive/legislative steps, to improve the situation of the tenants (on Kanam basis) –

  • i. The Government, in 1881 appointed Mr. Logan as Special Commissioner to investigate the question of land tenures and the adequacy of compensation allowed for tenants’ improvements. “He recommended legislation for giving fixity of tenure to actual cultivators of holdings not exceeding 25 acres of wet or dry land, or of 5 acres of garden land. He further recommended the fixing of the rent at two-thirds of the net produce. The report was vigorously criticized by various persons and the whole question of Malabar tenures was referred by the Government to a Special Commission presided over by Sir T. Madhava Rao ……”
  • The Special Commission presided over by Sir T. Madhava Rao, in their report, dated 17th July 1884, recommended giving fixity of tenure to persons who held directly under the janmis for a stated period of years. “The views of the Commission were subjected to a very trenchant criticism by the then Chief Justice of Madras. He upheld the view that the janmi had always possessed an unqualified and absolute right to the soil and that the tenant could be evicted at his pleasure after the contractual period of the tenancy.”
  • ii. In view of the strong observations made by the Chief Justice, the Government appointed a very strong Committee. The Committee decided that it was necessary to give the tenant on eviction the full value of his improvements and accordingly a bill was drafted to that effect and submitted to the Government on 9th February 1886. The Government placed it on the Statute book as The Malabar Compensation for Tenants’ Improvements Act, I of 1887. The said committee recommended legislation to the effect that no tenant should be ejected except at the end of an agricultural year and after giving six months’ notice and that the Collector should be empowered to grant waste lands in the ownership of private persons on patta to agriculturists. They accordingly submitted a draft bill to the Government along with their report but the Government did not accept the bill. Experience of the working of the Act I of 1887 showed that it had not had the effect of checking the growing practice of eviction. The Government, therefore, undertook an examination of the causes of the partial failure of the Act and came to the conclusion that the failure was to some extent due to the inadequacy of the compensation awarded by the Courts and that further legislation was necessary to rectify the defects of the Act.
  • Iii. In 1901, Compensation for Tenants’ Improvements Bill drafted by Mr. Benson was passed into law as Act 1 of 1900 which had the effect of repealing Act I of 1887 and re-enacting it with considerable amendments. Within a few years of the passing of Act I of 1900 complaints were made that it had not had the effect of imposing a check on the arbitrary exercise of the power of eviction and that ‘Melcharths’ had become usual for the purpose of evicting the tenants in possession.
  • iv. In 1905 the Government decided not to consider the matter further until the Estates Land Bill had been passed. In the Bill, as it was originally introduced in the Council, there was a provision enabling the Government to extend its operation by notification to the Malabar district, but the provision was removed before it was passed into law in 1908.
  • v. In 1911 the Government called for a report on the working of the Compensation for Tenants’ Improvements Act and this led to the re-opening of the larger question of a comprehensive tenancy Law for Malabar. The Collector of Malabar made a report in 1915. According to him, the main evils which required remedying were insecurity of tenure, rack-renting, exorbitant renewal fees, social tyranny and miscellaneous exactions. He came to the conclusion that it was a matter of economic necessity to give fixity of tenure to the tenant as the extension of cultivation would be greatly accelerated if the tenants who reclaimed lands were given more protection against eviction. He accordingly recommended that fixity of tenure should be given to all cultivating tenants, who had been in possession of land in a village for a period of 15 years. The proposals were severely criticized by his successor collector who reported that there was no political or economic reason for undertaking legislation. The Government agreed the same and dropped the question of tenancy legislation.

PN Prabhakaran Pillai, in ‘Historical Introduction to the Kerala Land Reforms Act and the Working of the Land Tribunals’, Cochin University Law Review 1, No. 1 (1974), pointed out that, in Malabar, a part of erstwhile Madras State, almost all lands including waste and forest lands were the private property of janmies. The janmies had been in the habit of evicting the tenants irrationally; and they had been giving land to new lessees, evicting former tenants, even when lease arrangements (with former tenants) were subsisting. The Malabar Compensation for Tenants Improvements Act, 1887, and its amendments made thereto, did not improve the situation.

Malabar Tenancy Act, 1929

‘Malabar Tenancy Act, 1929 was passed to protect some tenants from such arbitrary evictions by conferring fixity of tenure to cultivating verumpattomdars’. By this Act, and the amendments made thereto in 1945,1951 and 1954, “protection was guaranteed” to all types of verumpattomdars and kanonmdars, according to Prabhakaran Pillai.

Travancore Padmanabha Swamy Temple and ‘Bhandara Vaka’ Lands

The powerful King, Marthandavarma who ruled Travancore from 1729 to 1758, was successful in bringing all people and properties of Travancore (Southern Kingdom at present Kerala) under his administration; and collected tax from all lands except those that were expressly exempted.

The King of Travancore placed himself as the servant of the deity. The entire assets of Travancore were regarded as the property that belonged to the Treasury or Offertory (Bhandaram in Malayalam; Pandaram in Tamil) of the Principal deity – Sree Padmanabha Swamy Temple at Thiruvanamthapuram.

Deed of Dedication

The Translation of the Original Deed of Dedication in Malayalam (quoted from “Sree Padmanabha Swamy Temple” authored by Princess Aswathi Thirunal Gouri Lakshmi Bayi) reads as under:-

  • “We, Thrippappoor Keezhperur Veera Bala Marthanda Varma, Mootha Thiruvati (Senior member) of Thrippappoor and Sree Pandarakaryam Cheyvarkal, have this day, Wednesday the 5th day of the month of Thai, the seventh day of the bright lunar fortnight with Saturn residing in the eighth sign and Jupiter in the twelfth, Kollam 925, transfer by absolute gift and dedication, to endure as long as the Sun and Moon shall last, all the lands and functions appertaining thereto together with all rights and dignities, positions of honour and all other possessions that we have been hitherto enjoying as of right within the territories between the Thovala Fort in the East and the Kavana River in the West, in favour of Perumal Sree Padmanabha Perumal. In token whereof we have this day executed this deed of absolute gift and dedication.” (Quoted in: Marthanda Varma v. State of Kerala, 2021-1 SCC 225)

Report on The Census of Travancore, 1911

‘Report on The Census of Travancore, 1911’, Introduction reads as under:

  • “On the 17th of January, 1750, accompanied by the members of the Royal family, his minister and the principal officers, he proceeded in state to the shrine of Sri Padmanabha Svami at the Capital and publicly dedicated Travancore to the Deity by what is called the Thiruppadidanom ceremony (gift at the sacred foot-steps), undertaking to administer what then became Padmanabba’s State, as His agent and trustee, with the official title of “Sri Padmanabha Dasa” (Servant of Sri Padmanabha). This dedication, prompted by the then necessity, meant that all revenue was to be collected in the name of Sri Padmanabha Svami (Pandaravakai Muthal) and expended for the protection and development of the country’s national life.”

Census of India, 1951 (Travancore-Cochin)

In the official publication, ‘Census of India, 1951 (Travancore-Cochin), District Census Handbook, Trivandrum’, it is laid down as under:

  • After making the kingdom of Travancore the property of Sree Pandara Vagay, and converting all denominations of the State servants into Sree Pandarakariyum Chaywargal (men who perform the duty of the holy financial administration), the name of the talooks (districts) was changed and styled Mandapathomvathukal (the gate or presence of the pagoda,) and all business was now carried on under the new titles. The MahaRajah having next ordered Rama Iyen Dalawah to frame regular accounts and rules for fixing permanent taxes on lands and gardens, that official commenced a survey of them in 926 M.E. (1751 A.D.) , and conducted and completed this laborious work throughout Travancore in 929 M.E. (1754 A.D. ) The first Auyacattu account (assessment) in Travancore was clearly framed out after this survey, and the holders of lands and gardens were furnished with a Pathivu ( registry ).

Sri Marthanda Varma v. State of Kerala, 2021-1 SCC 225

In the appeal judgment, Sri Marthanda Varma v. State of Kerala, 2020-4 KLT 490: 2021-1 SCC 225, the Supreme Court extracted the history of the Padmanabha Swamy Temple set out by the Kerala High Court (in T. P.  Sundara Rajan v. State of Kerala, ILR 2011-1 Ker 604; 2011-1 KHC 386; 2011-1 KLT 634). The High Court Judgment included the following:

  • “4. Before proceeding to consider the legal issues raised and the jurisdiction of the lower courts and that of this Court which are also issues raised before us based on Article 363 of the Constitution, we have to briefly state the history of the Sree Padmanabha Swamy Temple. Even though the origin of the Temple is shrouded in antiquity and different versions are stated by different Authors, the modern history of this Great Temple starts with Anizham Thirunal Marthandavarma who established the modern Travancore State which was previously known as Venad. For over 200 years prior to the re-establishment of the Princely State and taking over of management of the Temple and the State by Marthandavarma, the Temple was under the control of “Ettarayogam” (group of eight and a half) consisting of seven pottis (Brahmins), one Nair chieftain and the King who had only half a vote, whereas all others had one vote each. While the committee of Potties controlled the Temple, the properties of the Temple were managed by Ettuveettil Pillamars, the 8 Nair chieftains belonging to eight big families spread over in different villages of the State. The King was a low key functionary in the Committee managing the Temple and he had only a very limited authority with half a vote……
  • The Ettuveettil Pillamars with the help of Brahmins in management of the Temple plotted against Marthandavarma becoming the King and they tried to instal the previous King’s son as the new King in deviation of the practice of the nephew of the King namely, Marthandavarma becoming the King. However, in the protracted battle that followed between the heir to the throne namely, Marthandavarma and his loyalists on the one side and the Ettuveettil Pillamars, the Brahmins, and the King’s son’s loyalists on the other side, Marthandavarma succeeded……
  • Marthandavarma took over full control of the State and the Padmanabha Swamy Temple and it is he who reconstructed the Temple which was in bad shape after a major fire that took place years back and installed a new idol. 
  • In fact the King surrendered his Kingdom to the presiding Deity namely, Padmanabha Swamy and declared himself the Dasa or servant of the Lord and assumed the name “Padmanabhadasa“. Marthandavarma ruled Travancore from 1729 to 1758 and after him also the Temple continued to be under the direct management and control of the King.

The Supreme Court continued as under:

  • “5. The act of surrender or dedication of the entire kingdom to Sree Padmanabhaswamy as referred to by the High Court has been described in a book (Published by Bharatiya Vidya Bhavan) [Dr. A. G. Menon – ‘History of Sri Padmanabhasvami Temple Till 1758] titled “Sree Padmanabha Swamy Temple” authored by Princess Aswathi Thirunal Gouri Lakshmi Bayi as under:-
  • Thrippati Danam – 5th of Makaram 925-ME/1750 AD Fifth Makaram 925 ME/19th or 20th January 1750 AD (Wednesday asterism Revait) stood witness to the act of a sublime dedication, the ultimate offering possible for a crowned head, carried out in supreme devotion – the Thrippati Danam. [Many historical works (too many to be listed).]  Like Arjuna before the Kurukshetra War and Emperor Ashoka after the Kalinga War, the futility of battles as a means to an end and the conscious feeling that the Travancore he created was built on a foundation of sacrifice of the liver and limbs of countless numbers who fell due to him and for him, deeply disturbed and distressed the Maharaja [Sree Uthradom Thirunal Marthanda Varma]. Along with the love which offered Marthanda Varma no satiation however much he might submit to his Lord, this trauma also activated him to surrender to God the Thiruvithamcoor (Travancore) stretching from Kanyakumari to Paravoor which he had won and made.
  • Before this dedication certain religious ceremonies like Poorna Kalasa Homam, invoking the Deity, and so on were performed, followed later by Mahabhishekam.
  • Maharaja Anizhom Thirunal Marthanda Varma arrived at the appointed time in the morning accompanied by all male and female members of his family, his trusted Dewan Ramayyan and other officials. In the presence of the Swamiyar, members of the yogam and Brahmins, the Maharaja is submitted to Sree Padmanabha Prajapati by Deed of Gift carrying his signature, his entire State of Travancore along with his total right on it thereof by placing the Crown, the royal umbrella, the twin white chauries (fans), the Manikandha; which were all symbols of royalty along with some Thulasi leaves on the Mandapam. Last but most significant, his famous sword, which had lashed its unleashed valour in countless battle fields, the unquestioned insignia of sovereign authority which the King valued the most, was also placed with utmost reverence by the Maharaja on the step of the Ottakkal Mandapam leading to the sanctum. Then the King received the sword back from the high priest and returned to the Palace after worship. His directive that any further conquest of territory brought under the rule of Travancore by his successors should also be surrendered to Sree Padmanabha Swamy was accepted and scrupulously adhered to with deep respect by the later generations.”
  • The English Translation of the Original Deed of Dedication which was drawn up in Malayalam is as under:-
  • “We, Thrippappoor Keezhperur Veera Bala Marthanda Varma, Mootha Thiruvati (Senior member) of Thrippappoor and Sree Pandarakaryam Cheyvarkal, have this day, Wednesday the 5th day of the month of Thai, the seventh day of the bright lunar fortnight with Saturn residing in the eighth sign and Jupiter in the twelfth, Kollam 925, transfer by absolute gift and dedication, to endure as long as the Sun and Moon shall last, all the lands and functions appertaining thereto together with all rights and dignities, positions of honour and all other possessions that we have been hitherto enjoying as of right within the territories between the Thovala Fort in the East and the Kavana River in the West, in favour of Perumal Sree Padmanabha Perumal. In token whereof we have this day executed this deed of absolute gift and dedication.”

VP Menon, who was the Constitutional Advisor to the Governor General

VP Menon, who was the Constitutional Advisor to the Governor General till 1947 and Secretary to the Ministry of States who ‘played a stellar role’ in the integration of the princely States into the Dominion of India, penned-down, ‘in part fulfilment of a promise made to the late Sardar Vallabhbhai Patel’, the “Story of Integration of the Indian States”. While dealing with Travancore-Cochin, VP Menon wrote as under:

  • “These two States, together with Malabar, have evolved a distinctive custom and culture of their own. The area is divided from the rest of India by the Western Ghats; and if a visitor were to cross the Ghats and enter Malabar, he could not fail to be struck by the change in scenery as well as in the life and customs of the people.
  • The ruling family of Travancore traces its descent from the ancient Chera kings of South India. In later historic times, Travancore was split up into a number of petty principalities. The consolidation of these into a single State was the achievement of Rajah Marthanda Varma, who ruled in the first half of the eighteenth century. He brought the whole of Travancore under his sway, established order and settled the country. In January 1750, he formally and solemnly dedicated the State to Sri Padmanabha, the tutelary deity of his family; and he and his successors have ever since ruled as ‘Dasas’, or servants of that deity.” (Quoted in: Sri Marthanda Varma v. State of Kerala, 2020-4 KLT 490: 2021-1 SCC 225)

Jenmies, Dewasoms and Sircar were Owners of Property in Travancore

In early times, Janmon lands, so long as they continued in possession of the Jenmi (Dewasom and Bhramin), were free from all taxations. King or Sirkar itself was one of the Jenmis. Sri T. Madhava Row’s Memorandum with regard to the origin and nature of Jenmom rights (Travancore Land Revenue Manual, Vol. IV) reads as follows:

  • “Be it remembered that the Sirkar itself is one of these Jenmis, it having come to possess Jenmom lands by gift, purchase, escheat, confiscation and other ways. It is only a great Jenmi, great in the sense that its Jenmom property is extensive. If any person wants land in Travancore, he must obtain it from, and hold it of, some one of the body of Jenmis, i.e., from the Sirkar, which is the chief Jenmi, or from some other Jenmi”. (Quoted in: Rev. Fr. Victor Fernandez v. Albert Fernandez, 1971 Ker LT 1; Kannan Devan Hills Produce Company Ltd v. The State of Kerala, AIR 1972 SC 2301).

Settlement Register of Travancore

‘Kettezhuthu’ and Kandezhuthu’

First attempt to make a settlement in Travancore was in 1712.  It was on ‘Kettezhuthu’ (what is heard) basis; i.e., on discussions with landholders. Pattas were issued after the settlement. In 1775 a complete survey was conducted on ‘Kandezhuthu’ (what is seen) basis. Pattas were issued to the holders on this basis also. Complete resurvey of garden lands was conducted in 1836. This time measurements were made with the scale if a 10-Feet-Rod. Pattas were issued this time also.

The last settlement of Travancore was during 1882 to 1909. The survey thereon was commenced in 1885 and finalised in 1910.

Revenue Settlement Register of Travancore in 1910, Basic Record of Land matters

The Kerala High Court held in Mohandas v. Santhakumari Amma, 2018-3 KLT 606 as under:

  • “We notice that, a new survey and settlement was undertaken in the erstwhile Travancore State for the purpose of putting in place a sound Revenue administration. Accordingly, it appears that a complete survey and reassessment of the entire State ’embracing an accurate measurement, demarcation, mapping and valuation of properties of every description and a registration of titles, as the basis of a sound Revenue Administration’ was carried out. On the basis of such a statement a proclamation was issued by the Maharaja of Travancore on 14 th Kumbhom 1061 corresponding to 24th February 1886.”

If Settlement Register says Government Land, Petitioner to Establish Title

In Vallikunnil Janaki Amma v. Sree Amruthamangalam Kshethram Moorthi, Kozhikode, 2014 (1) KHC 57, Kerala High Court, referring to the decision of the Apex Court in Sukhdev Singh v. Maharaja Bahadur of Gidhaur, AIR 1951 SC 288, observed as under:  

  • “Even though Ext. A2 is only an extract of the Settlement Register/ Adangal extract which may not by itself prove or confer title to a party in whose name the property stood registered, it can be accepted as evidence of title when there is no contra evidence. Admittedly it is adjacent to Amruthamangalam temple. The temple compound and this suit property which is adjacent to the temple are shown to be of Amruthamangalam Devaswom as per revenue record. In these circumstances, the contention that this property did not and does not belong to the temple/Devaswom cannot be sustained at all.” (Referred to in: Kunhimangalam Devaswam v. State of Kerala (2022 KHC OnLine 7354), 6 April, 2022, Anil K.Narendran, J.)

In Sahana Industries v. State of Kerala (2021 KHC OnLine 7110), Kerala High Court (Devan Ramachandran, J.) held (October 11, 2021) as under:

  • “… If the Settlement Register shows this land to be Government land, then certainly, the petitioner is obliged to establish their title over the property through competent documents”.

Is Settlement Register A Public Record

In Poddar Plantations Limited, v. Thekkemariveettil Madhavi Amma, ILR 2014-1 Ker 813, it is observed that the settlement register may be a public record. It is held as to the same as under:

  • “70. There could be no dispute that the court has the power to take judicial notice of public records. Assuming that the settlement register referred to by the Tribunal is a public record, it is not as if the contents of the settlement register cannot be disputed. Parties should get opportunity to challenge correctness of the contents of the document. The 2nd defendant did not get that opportunity. Hence the Tribunal was not correct in relying on the settlement register as referred to in its order.”

In Oriental Insurance Company Ltd. v. Poonam Kesarwani , (2010) ACJ 1992, the Division Bench of Allahabad High Court said that the State Register of Driving Licences is a public record; for, it can be inspected by any person.

Chitharanjan v. State of Kerala – 0n Settlement Register

In Chitharanjan v. State of Kerala, WP(C) No. 25830/2010 (2025:KER:5422) 24.01. 2025 (Harisankar V. Menon, J.) it is pointed out as under:

  • “7. …. In the settlement register at Ext. R1(a), there is no dispute that the entire properties under old Survey No. 2211 having an extent in excess of 107 Acres are shown as “puramboke….
  • 8…. As regards the petitioner in WP(C) No. 25830 of 2010 also, the title is traceable to some documents of the Attingal Sub Registry of the yeas 1959, 1957 and 1061. But, it is categorically found that even in these documents, there is no mention as to the receipt of pattayam with respect to the property in question.
  • 11. …. As already noticed, the settlement register describes the property as “Puramboke”. … In view of the discussions made above, I am of the opinion that the contentions raised by the learned Senior Government Pleader with respect to the malpractices committed, cannot be brushed aside.
  • 13….. However, I notice that WP(C) No.25830 of 2010 the entry with respect to the Settlement Register is to be considered at first, which admittedly is against the petitioner. The case of the State is that some foul play is carried out subsequently at the instance of those interested and therefore, the subsequent entries cannot be acted upon.
  • 14. On the other hand, the learned Government Pleader relied on Vallikunnil Janaki Amma and Ors. v. Sree Amruthamangalam Kshethram Moorthi, Kozhikode and Anr. [2014 (1) KHC 57], which laid down the principle with respect to the acceptability/relevance of the Settlement Register. As already noticed, I have found that the Settlement Register describes the property under old Survey No. 2211 as “Puramboke”. To the same effect is the judgment of a learned Single Judge in WP(C) No. 20520 of 2021 dated 11.10.2021. This Court further notices the judgment of the Apex Court in Suraj Bhan and Ors. v. Financial Commissioner and Ors. [(2007) 6 SCC 186] which held that mere entry in the revenue records does not confer title on a person. As already noticed, in view of the entries in the Settlement Register, the requirement of an appropriate assignment cannot be lost sight of.

In Travancore Devaswom Board v. Mohanan Nair M.N.,  (2013) 3 KLT 132, (T.R. Ramachandran Nair, J ; A.V. Ramakrishna Pillai, J), it is observed as under:

  • “18. …. The land register as well as the settlement register will establish the plea of the Board that the property having an extent of 2.26 acres is Temple property. Thus, Section 27 of Act of 1950 is clearly attracted and the property is clearly Devaswom property.”
  • “51. As far as the property herein is concerned, the land register and the settlement register produced herein are relevant. The property having the entire extent of 2.26 acres is described as ”kavu” (holy grove) in the settlement register. In the land register also it is described as ”kshethram irippu sthalam” (property where the temple is situated). No other document or other evidence is there to prove the contrary. Therefore, these documents will definitely show that the item of property will fit in with the requirement of Section 3(1)(x) of the Act.”
  • “75. … Apart from that, in the light of Section 27 of the Travancore Cochin Hindu Religious Institutions Act and in the light of the settlement register and land register, the property is described as Temple puramboke and not Government puramboke. Further Government lands are covered by the exemption u/s 3(1)(x) of the Land Reforms Act and therefore he cannot claim any fixity of tenure. There is no claim by the Government here to the property.”

Settlement Register (Adangal) as Mentioned in Kerala VO Manual

Clause 280 in Chapter 25 of the Kerala Village Office Manual (included in Land Revenue Manual  Volume  VI) refers to ‘Settlement Register (Adangal)’. 

Clause 280 says:

  • 1. Settlement Register is a Permanent Register.
  • 2. It is also called “Adangal” or “A Register”.
  • 3. There will be 2 Annexures (or Supplements) to the Settlement Register.
  • 4. The 1st Annexure (or Supplement) Registers kept in the Village Offices contain all matters as to the lands subsequently surveyed (that were not surveyed at the time of Settlement).
  • 5. The 2nd Annexure (or Supplement) Registers kept in the Village Offices contain all changes subsequent to settlement (and also the changes to the land mentioned in the 1st Annexure Registers).
  • 6. The serial number of the entries in the 2nd Annexure Registers shall be noted in the remark column of the Settlement Register.

In Travancore, after 1910, no “Settlement” or “Settlement Register” has been made 2018(2) KLT 369 (HML case, Para 111).

  • Note: ‘Adangal’ is a term originally used in the erstwhile Madras State. It is a Revenue Record based on the survey conducted.
  • See Note below: “Chitta and Adangal in Madras”

In Cl. 281, Basic Tax Register (BTR) is specifically referred to.  It is described as a “Permanent Register”.

  • Note: Clause 280 in Chapter 25 of the Kerala Village Office Manual referred to the Annexures (or Supplements) to the Settlement Register because it was prepared prior to the Re- Survey. In the Areas where the Re-Survey is conducted and BTR is made, the Annexures (or Supplements) has no prominence.
  • In view of the fact that the Basic Tax Register is mentioned in Cl. 281, it is clear that the “A- Register” referred to in clause 280 is not the BTR prepared after Re-Survey.  Thereby, it appears, even in places where Re-Survey is effected, the 1910 Settlement “A-Register” is to be maintained (as a ‘permanent register’).

Although Re-Survey was conducted in almost the entire Kerala State, no change has been made to Cl. 280 of the Village Office Manual; thereby, clause 280 still refers to the 1910 Settlement A-Register as the ‘basic document’.

As a matter of fact, in Village Offices the Registers are maintained with the name “A-Register” containing the particulars in BTR; and “B-Registers”, to incorporate the subsequent changes made in the land (after preparation of the BTR) though they are not specifically directed in Kerala Village Office Manual.  It is exactly corresponds to the “second additional register” stated in Cl. 281 of the Village Office Manual which is directed to be maintained in addition to the 1910 Settlement “A-Register”

  • Note: Settlement A to D Registers are (originally) referred to in the Travancore Land Revenue Manual, Vol. III (1915), in Cl. 712 and 713, respectively.
  • But Clause 280 in Chapter 25 of the Kerala Village Office Manual recognises the Settlement Register alone as ‘Permanent Register’.

As regards the authority of “Manuals” it is observed in State of Kerala v. Navaneeth Krishnan, ILR 2023-3 Ker 686; 2023-4 KLT 756, as under:

  • “The Apex Court in Lalita Kumari v. Govt. of U.P. [2013 (4) KHC 5522014-2 SCC 1] in paragraph 79 considered the binding authority of the CBI Crime Manual. It was held that CBI Crime Manual is not a statute, it is only a set of administrative orders issued for internal guidance of the CBI officers and it cannot supersede the provisions of Cr. P.C. It was further held that in the absence of any indication to the contrary in the Cr. P.C itself, the provisions of the CBI Crime Manual cannot be relied upon. A Single Bench of this Court in Santhosh T. A. And Another v. State of Kerala [2017 (5) KHC 107] dealt with the binding authority of the Kerala Excise Manual under the Abkari Act. It was held that the Manual contains only executive instruction and has no force of a statutory provision.”
  • In Jacob v. State of Kerala, 1964 KLT 359, it had been held (Vaidyalingam, J.), as under:
  • “The instructions or directions contained in the Travancore Land Revenue Manual … have not been given by virtue of any rule making power vested in the. Government, either under the provisions of the Travancore Revenue Recovery Act or under the provisions of the Travancore-Cochin Revenue Recovery Act. …. If that is so, the directions contained in the Travancore Land Revenue Manual can only be considered to be in the nature of executive directions and they will have no force whatsoever, especially in view of the fact that S.6 of the Travancore-Cochin Revenue Recovery Act, 1951 lays down that the sale of immovable property of the defaulter shall be “in the manner provided hereinafter”.

CochinLand Situation and Survey Settlement
Cochin was brought under the centralised administration by the King, Rama Varma, popularly known as Sakthan Thampuran (1790 – 1805). The feudal custom prevailed in Cochin had been divided the land under Naduvazhis or local chiefs – Paliyam swaroopam, Cheranellore Karthavu the head of the Anchi Kaimals, Muriyanatt (Mukundapuram-Nadavarambu) Nambiar the head of Arunattil Prabhus, Kodassery Kartha, Mappranam Prabhu, Vellore Nair, Chengazhi Nambiar (Chengazhinad Naduvazhi), Edappali Nampiyathiri etc.

During the second half of 18th century, as in the case of Travancore, major portion of the lands in Cochin were brought under the Government administration and these lands were called Sircar or Pandaravaka lands.

Settlement Proclamation of Cochin of 1080 ME (1905 AD) made a mountainous change in the land situation. Clause 13 of the Settlement Proclamation provided that the holders of Pandaravaka Verumpattom lands would acquire ‘full rights to the soil of the lands‘ they held and that their rights would remain undisturbed so long as they regularly pay the State revenue. Purushothaman Nambudiri v. State of Kerala, AIR 1962 SC 694; Padmanabharu Govindaru  v. The State of Kerala, AIR 1963 Ker 86.

Following the settlement Proclamation of 1905, a survey-settlement was done in Cochin during 1905-1909.

(See Notes below under the head: ‘Land Classification in Cochin)

Part II

Classification of Lands in Kerala

Classification of Janmam Holders in Kerala

Janmam (Jenmam) holders of lands were considered as the persons originally entitled to hold and enjoy the land as its Absolute Proprietor.

The meaning of the words ‘Janmam was considered in Balmadies Plantations Ltd. v. State of Tamil Nadu (1972) 2 SCC 133. It is observed to be exclusive right to possession of the soil and a hereditary proprietorship. It is described as ‘estate’ in the Constitution. (See also: The Kannan Devan Hills Produce v. The State of Kerala, (1972) 2 SCC 218; Bhavani Tea and Produce Co. Ltd.  v. State of Kerala, 1991-1 KLT 666).

Janmam right was confined to Brahmins, in ancient times. They were called Janmies (jenmies). Subsequently the rulers also began to hold and enjoy the land. The janmies leased or mortgaged lands to various cultivators, under various tenures. This lead to Classification of lands under various heads.

Three Classes of Janmom Lands: (i) Brahmaswom, (ii) Devaswom & (iii) Sircar

Brahmaswom: Brahmins were Original Jenmies, following Parasurama.
Devaswom: Brahmins endowed lands to Temples, to form Devaswoms.
Sircar Lands: Sirkar also became Jenmis by gift, escheat, confiscation, etc.

In Padmanabharu Govindaru  v. The State of Kerala, AIR 1963 Ker 86, it is observed as under:

  • “18. Coming to the second category of lands, viz., Jenmom lands, the Jenmies have full proprietary rights in the soil. The origin of the title of the jenmies is shrouded in obscurity but the development of this branch of land tenure was on the assumption that Parasurama who conquered the land of Kerala or, as mythology would put it, reclaimed it from the sea, gave it as gift to Malayala Brahmins or Nambudiries. The rest of the people cultivated the lands under the Jenmies. In course of time, the Jenmies endowed certain temples built by them with lands and thus the Devaswom lands came into existence. These were similar in nature and incidents to Jenmom lands. These lands were enjoyed free of tax, the State imposing a light assessment only when the Jenmies alienated the land to others.
  • We may extract the following passage from Sri T. Madhava Row’s Memorandum regarding the origin and nature of Jenmom rights:
    • “A Jenmi is often termed a landlord. But, it must be clearly understood and also always remembered that a jenmi, though certainly a land-lord, is a peculiar kind of landlord.”
    • Any person, who holds a pattah from a Collector in a British District and under it holds from the British Government subject to Government tax more or less, is called a landlord in ordinary language. Even in Travancore, any coffee planteror indeed any ryot, who holds lands under a grant from the Sirkar, etc., is or may be called a landlord. But, be it remembered, such landlords are not Jenmies.
    • A Jenmi differs from such landlords in that he does not derive his title to lands from the Sirkar etc. His title to the Jenmom lands is inherent. He is, so far as his Jenmom lands are concerned, a little territorial sovereign in a limited sense. He is landlord of his Jenmom domain exactly in the sense in which this Sirkar is landlord of all the land it grants to planters and indeed to all ryots in general; in the sense in which the British Government island-lord of all the Ryotwari lands of the East Coast Zillahs of the Madras Presidency.
    • It is necessary, in view to avoid errors and misconceptions, to familiarize the mind to this definition of a Jenmi.
    • The origin of Jenmom property may be briefly explained herewith a view to make the rights of jenmis clear. Kerala Desom (in which Travancore is included) was originally conquered by Parasurama, and this great warrier parcelled out the conquered lands among a limited number of Brahmins. The Brahmins then became territorial lords, each independent of the rest. From that early age, the lands have descended with the tenure almost unimpared. The lands so belonging to each Brahmin are said to constitute his Jenmom, and the Brahmin himself is called a Jenmi. These lands, so long as they continue in possession of the Jenmi, are free of all taxation. To this day this exemption continues in full force.
    • Jenmom lands are precisely what are in Europe called allodial properties as contradistinguished from feudal.
    • It must be clear from what has been stated that all the lands in Travancore belong to a body of Jenmis. There are no lands that do not belong to some Jenmi or other.
    • Be it remembered that the Sirkar itself is one of these Jenmis, it having come to possess Jenmom lands by gift, purchase, escheat, confiscation and other ways. It is only a great Jenmi, great in the sense that its Jenmom property is extensive.
    • If any person wants land in Travancore, he must obtain it from, and hold it of, some one of the body of Jenmis, i. e., from the Sirkar, which is the chief Jenmi, or from some other Jenmi”. (pp. 2 and 3 of Travancore Land Revenue Manual Vol. IV)”

Sircar was the largest Janmi

During the second half of 18th century the lands in Travancore and Cochin were brought under the Government administration and these lands were called Sircar or Pandaravaka lands. In certain places local chiefs (Nadu-vazhis) were ’emerged’.

On emergence of the Sircar and Ndu-vazhies, the they were considered as the janmi of those lands belonged to them (got under gift, purchase, escheat, confiscation and other ways – See: Travancore Land Revenue Manual – IV). Regarding Pandaravaka lands it is stated in the Travancore Land Revenue Manual as under:

  • Pandaravaka or Sircar lands are lands of which the State is the landlord or the Jenmi and whatever rights which vest in the ryots are (that) derived from the Sircar.”

In Kannan Devan Hills Produce Company Ltd. v. State of Kerala, AIR 1972 SC 2301, 1972-2 SCC 218, it is found as under:

  • “13. It must be clear from what has been stated that all the lands in the Travancore belonged to a body of janmis. There are no lands that do not belong to some janmi or other.
  • 14. Be it remembered that the Sircar itself is one of these janmis, it having come to possess janmam lands by gift, purchase, escheat, confiscation and other ways. It is only a great janmi, great in the sense that its janmam property is extensive.”

In Kannan Devan Hills Produce Company Ltd. v. State of Kerala, AIR 1972 SC 2301, 1972-2 SCC 218, it is further observed as under:

  • 15. If any person wants land in Travancore, he must obtain it from, and hold it of, some one of the body of Janmis, i.e. from the Sircar, which is the Chief Janmi, or from some other Janmi.” (Sir T. Madava Row’s Memo.) In Mr. Kunhiraman Nair’s Memo on Land -Tenures it is stated:
  • “At present the Sircar is the largest Janmi in the State. The janmam lands of all the petty Rajas subdued in the last few centuries and of several Madampies, have lapsed to the State, and other causes such as escheat & c, have tended, to increase the extent of the Janmam possession of the Sircar. About three- fourths of the whole land in the State belong on Janmam to the Sircar, the remaining one-fourth being distributed among the classes mentioned in para 32 It is interesting to note that in certain parts of Madras Janmam rights existed ‘and the ‘Government lands were called government janman lands.
  • (See Government Order No. 1902 Revenue dated November 1, 1926) Para 3 of that order deals with the janmam estates and reads as under:
  • “3. JANMABHOGAM.-Paragraph 11 of ‘the Board’s Proceedings-“Lands have neither to been described as-
    • Government Janmam, i.e. lands which are held directly from the Government and on which taram assessment and janmabhogam are paid to the Government and
    • private janmam, i.e. lands which are held directly from the Government and on which taram assessment but not janmabhogam is paid to the Government.”

Concept of “Janmam” on Lands, and Classification of Lands, in Travancore

‘Jenmom Lands’ and ‘Janmies’ in Travancore

The concept of ‘Janmam’ (‘inherent right’) is associated with the myth that Parasurama, reclaimed the lands in Kerala from the sea with the help of a hatchet, and gave lands to Brahmins. The lands belonging to Brahmins constituted ‘jenmom’ .

They did not derive their title to lands from any King or Sircar; and it was considered as an ‘inherent right’. It can be equated to ‘allodial properties in Europe’, contra- distinguished from feudal. (See: Kannan Devan Hills Produce v.  The State of Kerala, AIR 1972 SC 2301)

Till the second half of 18th century, the entire lands were considered to be belonged to some janmi or other.

“Janmi” – Absolute Proprietor; Ryotwari Pattadar, Not Proprietor

Tamil Nadu Gudalur Janmam Estates (Abolition and Conversion into Ryotwari Patta) Act, 1969 defines in Sec. 2(7) Janmi as under

  • “(7) “janmi” means a person entitled to the absolute proprietorship of land and includes a trustee in respect thereof.”

In The Nilambur Kovilagam, Nilamburv. The State of Tamil Nadu by the Secretary to Government, Revenue Department, Fort St.  George, 1971-1 MLJ 255, it was observed as under:

  • In the Glossary to the Fifth Report ‘janmam’ is said to imply birth, birth right, hereditary or proprietary right in the soil. We find from the Madras District Gazetteers relating to Malabar that the origin of Janmam has been stated thus at page 305:
  • “Parasurama created Malayam, the Keralabhumi, and gave it as a gift to the Brahmins of the 64 gramams. The gift of flower and water given to the sixty-four gramams together for their enjoyment is called janmam.”
  • On the basis of this and other texts, the Gazetteer adds:
  • “the Brahmins support their claim that they and they alone have always enjoyed the full janmam or proprietary right in the land; and as Brahmins are expressly exempted by Manu from payment of taxes, the tradition is offered as a simple and satisfactory explanation of the absence of any general land revenue in Malabar at the time of the first Mysorean invasion.”
  • The early British administration appears to have generally accepted this tradition, though it seems that they were more concerned with giving an accurate account of the land tenures as they found them. In 1793 one Mr. Farmer, one of the first Commissioners for inspecting the countriesceded by Tippu Sultan, reported that the possessors of land were of two descriptions: (1) Jelm-kaars or free holders who held their lands either by purchase or by hereditary descent and (2) Kanoonkaars or mortgagees, to whom an actual delivery of the land appeared to be made, although the money taken upon it was not at all proportioned to the value of the land. In 1800 Dr. Buchanan referred to the Janmis before the conquest by Hyder as the actual lords of the whole soil. Major Walker, who prepared in 1801 an elaborate treatise on the several forms of conveyance and leases, stated that jenma-karan possessed the entire right to the soil and no earthly authority could justly deprive him of it, but his Tight was confined to the property’ and he possessed neither judicial nor political authority. Mr. Thackeray reporting on land tenure in 1807 has observed to the same effect and said that almost the whole of the land in Malabar, cultivated and uncultivated, was private property and held by janmam right, which conveyed full absolute property in the soil. According to one Mr. Warden, who was Collector of Malabar from 1804 to 1816, the jenm right of Malabar vested in the holder an absolute property in the soil.
  • In Secretary of State v. Ashtamurthi1, in which considerable evidence was examined, it was pointed out that jenmis or the proprietors of the soil in Malabar had long been in the habit of leasing out the greater portion of their estates to “kanomdars who were thus in the immediate occupancy of the greater part of the soil. Parker, J. one of the members of the Division Bench, observed:
  • ”This was the State of things at the time of Hyder’s conquest and the British Government is stated to have continued the practice of the Mysore Government in settling the assessment with these ‘kanomdars. At the annexation of Malabar in 1799 the Government disclaimed any desire to act as the proprietor of the soil, and directed that rent should be collected from the immediate cultivators, Triambad Ranu v. Nana Bhavani2and Secretary of State v. Vira Rayan3, thus liimiting its claim to revenue. Further, in their despatch of 17th December, 1813, relating to the settlement of Malabar the Directors observed that in Malabar they had no property in the land to confer, with the exception of some forfeited estates. This may be regarded as an absolute disclaimer by the Government of the day of any proprietary right in the jenmi’s estates, and is hardly consistent with the right of letting in a tenant which is certainly an exercise of proprietary right.“
  • We will have occasion to refer to Secretary of State v. Ashtamurthi1, in greater detail, but at this stage we may note that it was clearly pointed out by both the learned Judges who decided the case, that janmam was an absolute proprietary right in the soil, subject only to liability to payment of revenue. Meenakshi v. Secretary of State4and Neelakhandan Nambudripad v. The Secretary of State5, also affirmed that janmis owned absolute rights in the soil of the land. Subba Rao, J. (as he then was) observed in Kochuni v. States of Madras and Kerala6. Subba Rao, J. (as he then was) in Kochuni v. States of Madras and Kerala1. He holds the property directly under the Government, not as a tenant, but as a proprietor, subject only to the liability to pay the tax or revenue. Incidentally it follows that janmam right carries the indicia of an estate as is understood in the law of land tenures in Madras. The expression ‘estate’ has been defined in the Madras Estates Land Act, 1908, which is a law relating to land tenure. Madras Regulation XXVI of 1802, the Madras Proprietary Estates’ Village Service Act, 1894, The Malabar Land Registration Act, 1895, and the Madras Survey and Boundaries Act, 1897, contain definitions of an ‘estate’ which though not enactments relating to tenures, point to the basic elements of an estate, namely, the holder’s proprietorship in the land and direct relation to the Government by paying the land revenue to them and capacity to induct sub-tenures involving the relationship of landlord and tenant.
  • Can it be said that these basic elements of janmam lands, which we noticed about, have ceased to exist and the janmam lands have become ryotwari lands by reason of the introduction of the settlement and resettlement? What constitutes ryotwari tenure is well settled. In theory, a ryotwari pattadar is not the proprietor of the land and there is certainly no possibility of occupancy ryots under the ryotwari pattadar. Also the pattadar, if he so desires, may relinquish his holding in favour of the Government so as to be relieved of the liability to pay revenue. But what he relinquishes is not his ownership in the soil, but only his right as a tenant under the Government. The basic assumption on which a ryotwari tenure proceeds is that the Government or State is the owner of the land and that ryotwari pattadar is the tenant and, therefore, the Government is entitled to share the produce, the Government’s share being determined on a system of survey, field classification and net produce. It will suffice to refer to the authoritative statement as to the ryotwari system in K. Kunhikoman v. State of Kerala2. Wanchoo, J., who spoke for the Court, stated: was never considered a proprietor of the land under his patta, though he had many of the advantages of a proprietor.“

Official Publication, ‘Census of India, 1951

In the official publication, ‘Census of India, 1951 (Travancore-Cochin), District Census Handbook, Trivandrum’, it is laid down as under:

  • “6. LAND TENURES
  • Till a century ago, the State presented an interesting (though from the point of view of economicdevelopment, far too complex) system of land tenures derived from Land Tenures the peculiar conditions of its historical development. They have been considerably simplified by several pieces of land-tenure legislation.
  • The chief categories of tenure· in this district may be broadly classified:-
  • .I. (a) Pandaravaka. These (comprising three-fourths of the total area of the State and including the vast majority of holdings) are lands belonging to the Sirkar or government. All tenants are now practically owners of their land, subject to payment of tax.
  • (b) Kandukrishi lands. They are the home-farm lands of the Maharaja of Travancore.
  • (c) Sripandaravaka lands (extent, 28,000 acres). These are lands belonging to the temple of Sri Padmanabhaswami in Trivandrum and lie scattered in the various taluks of this district.
  • (d) Sripadam lands-(area about 15,000 acres). These, lying in the pakuthies of Edakkodu and Attingal in the Chirayinkil taluk, are the private property of the Maharaja of Travancore. In all government lands, the system of land-tenures is based on· the ryot-wari principle, i. e . direct settlement with individual ryots.
  • II. Jenmom lands. They are the absolute private property of the owners. Under the Jenmikudiyan Acts, ryots holding jenmom lands have been given fixity of tenure, the dues to the jenmi being collected and paid to them by government the collection being made along with the land-tax.
  • The chief systems of tenancy under which tenants hold lands owned by others are:
  • I. Verumpattom (venpattom). They are tenants who hold lands on lease for periods and on -conditions, stated in the contract; they are liable to be evicted under the conditions of the contract.
  • II-Varamdars (Pankuvaramdars). They are people who’ raise crops ron agricultural lands in partnership with the owners of the land; the conditions of partnership vary in different localities.
  • III-Kudikidappukar. They are persons who were previously allow.ed by the owners of the land to occupy a small portion of it, generally to put up a small house to live in and watch the land or work on it.
  • IV -Otti (Mortgages). Tenancy under this head take different forms in different regions. The question of giving fixity of tenure to cultivating tenants is under consideration. It may be stated that the ratio of cultivating tenants to non-cultivating owners of land in this district is 4: 1.

Sree Pandarakaryam Cheyvarkal” PropertyLands exclusively held by Govt.

Large extent of properties are seen recorded as Sree Pandarakaryam Cheyvarkal (Cheivarkal) properties in the settlement register of 1910 (Travancore). It is pertinent to note that ‘Sree Pandara karyam Cheivarkal’ was the character/name assumed by the King at the time of ‘truppadi danam’. (See notes below under the heading – Travancore, Padmanabha Swamy Temple and ‘Bhandara Vaka’ Lands)

In P. R. Harikumar v. State of Kerala, 30 June, 2011, the High Court of Kerala pointed out the stand of the State of Kerala as regards the ‘Sree Pandarakaryam Cheyvarkal’ as under:

  • “23. It is the further contention of the Government that “As per the Settlement Register of 1908 maintained by the State of Travancore, the lands aforesaid are “Sree Pandarakaryam Cheyvarkal” measuring about 2203.4 Acres and forest measuring about 1195.98 Acres which are the lands exclusively held by the Government“.

The concept of Classification of Lands

The concept of classification of lands emerged in 2nd half of the 19th century in Travancore and Cochin. The lands were classified under 8 heads in the Travancore Land Revenue Manual, Volume III (1915).  They were –

  • (i) Edavagas;
  • (ii) Registered lands;
  • (iii) Purambokes;
  • (iv) Tharisu or assessed waste;
  • (v) Thanathuchitta lands;
  • (vi)  Reserved Forests;
  • (vii) Reserved lands or proposed reserves; &
  • (viii) Unreserved lands.

Registered lands

Registered lands were that included in Sirkar Revenue accounts as lands held by or granted to individuals, families, institutions, etc.

  • The revenue from these lands fell under the head, ‘Ayacut’ or ‘Settled Revenue’.
  • Each of this field had been surveyed and settled.
  • The functions of the Land Revenue Department were to collect the revenue and see that no encroachment was made on adjoining Sirkar lands (puramboke, tharisu, forests).

Our Apex Court in Kannan Devan Hills Produce Company Ltd. v. State of Kerala, AIR 1972 SC 2301, 1972-2 SCC 218, held as under:

  • “In the Travancore Land Revenue Manual, Vol. III, Revised Edition, 1936, Registered Lands are described as follows
    • Registered lands are lands registered in the revenue accounts as held by or granted to individuals, families, corporations or institutions, and comprise all the different kinds of tenures bearing either the full assessment or wholly or partially free of assessment. These lands comprise not only the areas brought under cadastral survey but include also coffee, tea, rubber and other estates, cardamom gardens and other special grants outside the limits of cadastral survey.”
  • The Registered Lands include inter alia, (a) Pandaravaka lands and (b) Janmam lands. Regarding Pandaravaka lands it is stated :
    • “Pandaravaka or Sircar lands are, lands of which the State is the landlord or the Jenmi and whatever rights which vest in the ryots are derived from the Sircar.”

‘Jenmom’ was proprietary interest with Liability to Pay Tax (Freehold)

The concepts on ‘janmam’ continued even after introduction of Tax system by Government. ‘Jenmom’ was taken the proprietary interest of a landlord in lands (Kavalappara Kottarathil Kochuni v. States of Madras and Kerala, AIR 1960 SC 1080). Subba Rao, J., observed as under:

  • “Under the definition, any janmam right in Kerala is an “estate”. A janmam right is the freehold interest in a property situated in Kerala.
  • Moor in his “Malabar Law and Custom” describes it as a hereditary proprietorship. A janmam interest may, therefore, be described as  “proprietary interest of a landlord in lands” and such a janmam right is described as “estate” in the Constitution. Substituting “janmam right” in place of “estate” in cl. 2 (b), the “rights” in Art. 31 A (1) (a) will include the rights of a proprietor and subordinate tenure-holders in respect of a janmam right.
  • It follows that the extinguishment or modification of a right refers to the rights of a proprietor or a subordinate tenure-holder in the janmam right. A proprietor called the janmi or his subordinate tenure-holder has certain defined rights in janmam right”. Land-tenures in Malabar are established by precedents or immemorial usage. Janmam right is a freehold interest in property and the landlord is called  “janmi”. He can create many subordinate interests or tenures therein.” (Quoted in: Kannan Devan Hills Produce v.  The State of Kerala, AIR 1972 SC 2301)

In the Jenmi and Kudiyan Regulation, V of 1071 (1896), Jenmom land is defined as-

  • “land (other than Pandaravaka, Sripandaravaka, Kandukrishi or Sircar Devaswom land, recognised as such in the Sircar accounts) which is either entirely exempt from Government tax or if assessed to public revenue, is subject to Rajabhogam only, and the occupancy right in; which is created for a money consideration (Kanom) and is also subject to the payment of Michavaram or customary dues and the payment of the renewal fees.”

The Travancore Jenmi and Kudiyan Act, V of 1071 (1896), defines ‘Jenmi’ as under:

  • ” ‘Jenmi’ means a person in whom the proprietary right over Jenmom lands is vested and includes, in the case of Devaswoms owning Jenmom lands, the managing Trustee or Trustees of the Institution for the time being.”

In Padmanabharu Govindaru  v. The State of Kerala, AIR 1963 Ker 86, it was observed with respect to the ‘Janmi’ as under:

  • “What the definition stresses is the proprietary right in the land. We may in this connection extract a passage from the Memorandum of Mr. Kunhiraman Nair, one of the Judges of the High Court of Travancore, about 70 years ago:
  • “The term ‘Jenmom’ was originally used by the Brahmins exclusively to denote their allodial proprietorship and is still used in that sense in courts and cutcherries in Travancore, though in other parts of Malayalam and in popular parlance in Travancore, the term is now universally employed to denote the full proprietary right in the land of any class of people”.

Michavaram is Essentially Rent

Michavaram is explained in the speech of Kayalam Paramesvaran Pillai (Additional Head Sircar Vakil) while moving the Travancore Jenmi and Kudiyan Regulation (Amendment) Bill, on 28th May 1935 (‘Proceedings of the Travancore Sri Chitra State Council’), as under:

  • “Honourable members know what a kanapattom transaction is. It is a demise by a jenmi to a person called kudiyan in respect of a Jenmam land on receipt by the jenmi of an amount as loan, called Kanam. The kudiyan has to pay a rent or pattom to the jenmi. The jenmi has to pay interest in respect of the kanam money advanced. The net result is that the kudiyan pays to the jenmi the rent or pattom minus the interest and this residual rent is called michavaram. Besides this michavaram the kudiyan has also to pay certain customary dues and periodical fees.”

In Mangala Kunhimina Umma v. Puthlyaveettil Paru Amma, AIR 1971 SC 1575, it was observed as under:

  1. The decision of the learned Single Judge of the Kerala High Court in Parameswaran s case, 1962 Ker LT 404 (Parameswaran Embranthiri v. Narasimha Nambudiri) was that recital in the deed that the defendant was to be in possession of the properties and was to pay the revenue out of the income and appropriate the balance towards interest on the amount of the advance amounted to a stipulation for payment of revenue as michavaram or rent. In Sankunni s case, ILR (1944) Mad 254 (Sankunni Variar v. Neelakandhan Nambudripad) the direction to pay revenue out of the rent of the property which was due to the landlord was justifiably held to be a payment on behalf of the landlord because it was apart of the michavaram. That reasoning could not apply to Parameswaran s case, 1962 Ker LT 404 (supra), because in that case there was neither any fixation of rent nor any stipulation for payment of rent or michavaram to the landlord.

Concept ofFreehold lands’

The term Freehold‘ is used in erstwhile Travancore to denote two ideas –

  • 1. Exempted from payment of any kind of tax to Government.
  • 2. Free to cultivate any crop (inasmuch as crop is specified in ordinary leases/grants).

Exempted from payment of any kind of tax to Government

Travancore State Manual Vol. III published by the Travancore Government in 1940, says as to the class of jenmom land which were entirely freehold and exempted from payment of any kind of tax to Government under any circumstances. These were the special properties given by the Ruler to certain individuals considering their valid services or to certain institutions including temples.

Free to cultivate any crop

In the proceedings of the Chief Secretary to the Travancore Government, dated 28.03. 1906, the request of the tenant to ‘convert the lease hold into free-hold’ in the light of the promise “to pay 3 annas instead of 2 1/2 annas, the rent payable at present per acre” is seen allowed. The tenants represented that they were ‘prepared to pay tax that may be payable on lands under coffee, tea or other products at the rates which may prevail at that times’.

It was added further:

  • “If any portion of land is brought under rubber cultivation he also agreed to pay tax at the rate Rs. 2 per acre per annum on such land. He also agreed to pay an upset price of Rs. One per acre on the 10 sq. miles of land granted to them as consideration for converting the leasehold into freehold tenure”.

The intention and objective of the term “freehold” in the Order of the Chief Secretary is clear from the following statement –

  • “The other terms of the grant shall be the same as those that apply to waste lands granted under the Coffee land Rules dated 7th July 1898″. (Quoted in: Majeed v. State of Kerala,(2006) 1 KerLT 19.)
    • Note: Under the aforesaid Rules, 1898 the grantees were allowed to cultivate only “coffee”.

The aforesaid view is fortified by the decision in Kannan Devan Hills Produce v.  The State of Kerala, AIR 1972 SC 2301, which states as under:

  • “It thus appears that the State grants like Kanan Devan Hills Concession and Ten Square Miles Concession, and Munro Lands, were treated under the heading ‘Pandaravaka Lands, i.e. lands belonging to the Sircar.”

Concept of Grants’

The lands granted/leased by Erstwhile (Travancore or Cochin) Sircar continued to be lands belonging to the Sircar, and the grantees did not acquire absolute proprietary rights. It is made clear in the following decisions.

Kannan Devan Hills Produce v.  The State of Kerala, AIR 1972 SC 2301The Concession from Punjar Valiya Raja and the deed of Ratification of the Travancore Govt. laid down that the grantee was permitted only to hold the land; and it had no absolute ownership.
State of Kerala v. Kanan Devan Hills Produce Co. Ltd., (1991) 2 SCC 272Finding of Trial Court (on Grant deeds) company did not acquire absolute proprietary rights – upheld.
Padmanabharu Govindaru  v. The State of Kerala, AIR 1963 Ker 86A coffee planter who holds lands under a Grant  is not a Jenmi.
Majeed v. State of Kerala,(2006) 1 KerLT 19Petitioner contended – ‘Grant was free hold property. The court did not accept.
Thomas Philip v. Forest Range Officer, 2021-2 KerLT 578Arguement that deed of ‘Grant’ ‘for coffee or tea cultivation’ was not a grant, but a title deed was not accepted.

Important Enactments on ‘Grant’

1. The Government Grants Act, 1895

The Government Grants Act, 1895 (known as ‘Crown Grants Act, 1895’), had been enacted with a view to secure the Govt. lands from potential or protracted legal claims. It applies to erstwhile Malabar area of Kerala (part of former Madras State).

The Government Grants Act, 1895 reads as under:

1. Title and extent.-(1) This Act may be called the Government Grants Act, 1895.
(2) It extends to the whole of India except the territories which, immediately before the 1st November, 1956 , were comprised in Part B States.
2. Transfer of Property Act, 1882, not to apply to Government grants.-   Nothing in the Transfer of Property Act, 1882 (4 of 1882 ), contained shall apply or be deemed ever to have applied to any grant or other transfer of land or of any interest therein heretofore made or hereafter to be made by or on behalf of the Government to, or in favour of, any person whomsoever; but every such grant and transfer shall be construed and take effect as if the said Act had not been passed.
3. Government grants to take effect according to their tenor.- All provisions, restrictions, conditions and limitations over contained in any such grant or transfer as aforesaid shall be valid and take effect according to their tenor, any rule of law, statute or enactment of the Legislature to the contrary notwithstanding.

2. Government Lands Grants Act, 1940 (Cochin)

The Government Lands Grants Act, 1940 (enacted with the same words to effect restrictions as that of the Government Grants Act, 1895) made constraints in the ‘grant or other transfer of land or of any interest therein heretofore made or hereafter to be made by or on behalf of the Government to, or in favour of, any person whomsoever’.  By virtue of this Act also, Transfer of Property Act and Tenancy Acts did not to apply to lands given as grant by the Government.

3. Kerala Grants and Leases (Modification of Rights) Act, 1980

Kerala Grants and Leases (Modification of Rights) Act, 1980 was enacted with a view to modify the rights under grants and leases, for cultivation, made by the former States of Travancore and Cochin. The Act was made for the reason that such grants and leases brought about heavy loss to the Government and they resulted in huge un-earned profits to the grantees and lessees; and it was found necessary in the public interest that such undue profits to a few person were to be utilised for the common benefit of the general public.

Read blog: Grant in Law

Key Decisions on Grant

In the following cases the effect of “grant” by the Erstwhile Governments was considered.

1. Kannan Devan Hills Produce Co. Ltd. v.  The State of Kerala, AIR 1972 SC 2301

The Supreme Court, in Kannan Devan Hills Produce v. The State of Kerala, AIR 1972 SC 2301 (Sikri (Cj), Shelat, A.N. Ray, I.D. Dua, , H.R.  Khanna, JJ.) held that Kenan Devan Hills Concession (on grant deeds) fall within the expression “Janmam right” vested with Sircar. The State of Kerala made an Act – the Kannan Devan Hills (Resumption of Lands) Act, 1971, to “vest” the possession of the land remained in the possession of the Kannan Devan Hills Produce Co. Ltd.

According to the petitioner Company,it has at all times been holding, cultivating, enjoying and dealing with the Concession Land as the absolute, owner thereof’.

According to the State, this land is dealt with under this heading – Pandaravaka Lands, i.e. lands belonging to the Sircar. and that it was only “granted” to the company for ‘coffee cultivation’. The State asserted in this case –

  • that the petitioner Company was not an absolute owner, but only a lessee under the Government, especially since the 1899 Proclamation issued by H.H. the Maharaja declaring that Kannan Devan Hills was ‘an integral part’ of the ‘territory’.
  • that the petitioner’s predecessor-in-title was John Danial Munro, who obtained, the first Pooniat Concession from Punjar Valiya Raja, on July 11, 1877. This Concession recited that an, application was made for the grant of the above property to the Raja for coffee cultivation.
  • It was further stipulated in the Concession that
    •  “you shall clear and remove the jungles, and reclaim the waste lands within the said boundaries, and cultivate them with coffee up to the year 1058 and from the year 1059, pay our rent collector a yearly rent at the rate of 3,000 British Rupees.”
  • H.H. the Maharaja executed a deed of ratification, dated November 28, 1878, by which the Government ratified the First Pooniat Concession dated July 11, 1877.
  • This deed of ratification laid down –  the Government permitted the grantee to hold the land. (it is similar to the ‘Grant/Title’ deeds executed by the State in all other ‘Grants’ – under the ‘Grant Rules’).
  • Clause 5 of the Deed of Ratification, is important. It provides, inter alia, that
    • “The grantee can appropriate to his own use within the limits of the grant all timber except the following and such as may hereafter be reserved namely, Teak, Cole Teak, Blackwood, Ebony, Karoonthaly, Sandalwood; should he carry any timber without the limits of the grant it will be subject to the payment of Kooteekanom, or Customs Duty……….
  • The eleventh clause reads – “The land granted shall be held in perpetuity as heritable or transferable property, but every case of transfer of the grant by the grantee shall be immediately made known to the Sircar, who shall have the right of apportioning the tax, if a portion of the holding is transferred.”
  • The twelfth clause stipulates – “The discovery of useful mines and treasures within the limits of the grant shall be communicated to the Sircar, and the grantee shall in respect to such mines and treasures, abide by the decision of the Sircar.”
  • The sixteenth clause provides – “The grantee shall be bound to preserve the forest trees growing on the banks of the principal streams running through the tract to the extent of fifty yards in breadth on each side of the stream, the Underwood only being permitted to be cleared and coffee planted instead. Similarly he shall also be bound to preserve the, trees about the crest of the hill to the extent of a quarter of a mile on each side.”
  • A Royal Proclamation was made on September 24, 1899 provided that ‘Anjanad and Kannan Devan Hills is an integral portion of our territory and that the inhabitants of the said tract are ‘hereby informed and warned that they are not to pay any taxes, rents or dues, or make any other payment to the Poonjar Chief.

Points came for consideration in this decision were the following:

  • Whether the Kannan Devan Hills (Resumption of Lands) Act, 1971 was protected from challenge under Art. 31A of the Constitution. That is, whether these lands fall within expression ‘Janmam right’ or “estate”  in art. 31A of the Constitution.
  • If the lands acquired were an “estate”, or with ‘Janmam right’ owned by the Company, the land reform enactment did not have stood valid. (Note: Kesavananda Bharathi Case came in 1973.)

The Apex Court found the following:

  • The janmam rights (even if remained with the Poonjar Chief, H.H. the Maharaja became the janmi by the Royal proclamation of 1899.
  • The nature of ‘janmam right’ has been examined by this Court previously in Kavalappara Kottarathil Kochuni v. State of Madras [1960] 3 S.C.R. 887 Subba Rao, J., observed that janmam right in Kerala is an “estate and it is the freehold interest.
  • The Sircar itself is one of these janmis and it was the largest Janmi. It came to possess janmam lands by gift, purchase, escheat, confiscation and other ways
  • If any person wants land in Travancore, he must obtain it from, some one of the body of Janmis, i.e. from the Sircar, which is the Chief Janmi, or from some other Janmi.

The Apex Court observed as under:

  • “… On the material placed before us it is difficult to resist the conclusion that the lands in dispute fall within the expression “Janmam right”.
  • If, as stated in Travancore Land Revenue Manual Volume IV, there are no lands that do not belong to a Janmi and the Sircar becomes a janmi by gift, escheat confiscation or otherwise, the effect of the Royal Proclamation of 1899 must be that the Sircar became the Janmi.”

The Apex Court further found –

  • The Registered Lands included inter alia, (a) Pandaravaka lands and (b) Janmam lands.
  • Regarding Pandaravaka lands it is stated : “Pandaravaka or Sircar lands are, lands of which the State is the landlord or the Jenmi and whatever rights which vest in the ryots are derived from the Sircar.”
  • Kenan Devan Hills Concession is dealt with under this heading, i.e. Pandaravaka Lands.
  • It thus appears that the State grants like Kanan Devan Hills Concession and Ten Square Miles Concession, and Munro Lands, were treated under the heading ‘Pandaravaka Lands, i.e. lands belonging to the Sircar (that is, such Grant-lands were not ‘owned’ by the holders thereof).

On these findings The Apex Court upheld the Kannan Devan Hills (Resumption of Lands) Act, 1971 and dismissed the challenge of the Company.

2. State of Kerala v. Kanan Devan Hills Produce Co. Ltd., (1991) 2 SCC 272

With respect to the same property  it was held in State of Kerala v. Kannan Devan Hills Produce Co. Ltd., (1991) 2 SCC 272as under:

  • “The Trial Court in a detailed and well-reasoned judgment dismissed the suit of the company. The Trial Court on the interpretation of First Concession (Exhibit P- 1), Second Concession (Exhibit P-2), deed of ratification (Exhibit P-62) and the Government agreement with the Society dated August 2, 1866 (Exhibit P-64) came to the conclusion that the company did not acquire absolute proprietary rights over the Concession Area or the trees and timber in the said area. It was held that the Poonjar Chief had only conveyed heritable and transferable possessory rights over the Concession area to the grantee. It was also held that absolute rights over the trees and timber in the Concession Area did not pass to the grantee and it had only the right to use and remove timber subject to the restrictions imposed in the deeds of conveyance/ratification.”

It is observed:

  • “An identical clause in another grant entered into by the Travancore Government came for consideration before a Full Bench of the Kerala High Court in George A Leslie v. State of Kerala, 1969 K. L.T. 378, K. K. Mathew, J. (as the learned Judge then was) interpreted the clause as under:
    • We think that if title to the reserved trees passed to the grantees, a provision of this nature would have been quite unnecessary. There was no purpose in stating that the grantees will be free to appropriate the reserved trees for consumption within the limits of the grant, if title to the trees passed to the grantees; the provision is a clear indication that the grantees were allowed to cut and appropriate the reserved trees for consumption within the limits of the grant as a matter of concession.”
  • “We agree with the interpretation given to the clause by Mathew, J. and hold that the respondent- company did not acquire absolute proprietary rights over the Concession Area or the trees and the timber therein.”

It is observed further:

  • “It was further held by Mathew, J. (in George A. Leslie v. State of Kerala, 1969 KLT 378) that kuttikanam being the governments share of the value of the trees owned by the government it has the power to fix the value of the trees. We agree with the reasoning and conclusions reached by Mathew, J.”

The Apex Court upheld and approved “the judgment and findings” of the Trial Court.

3. George A. Leslie v. State of Kerala – AIR 1970 Ker 21, (K. K. Mathew, J.)

Travancore Regulation II of 1040 (1865) and Rules for the sale of Waste Land on the Travancore Hills dated 24th April 1865 considered.

It is observed:

  • “Ext. P-l is a grant made under the Travancore Regulation II of 1040 and the Rules for the sale of Waste Land on the Travancore Hills dated 24th April 1865. It conferred a heritable and transferable interest in the grantees of the land comprised in it. Clause 5 in Ext. P-l, which is identical with Section 5 in Form A of the Rules for the sale of Waste Land on the Travancore Hills, is the relevant provision for deciding this question. It provides:
    • “Grantees can appropriate to their own use within the limits of the grant all timber except the following and such as may hereinafter be reserved, namely, Teak, Gole Teak, Blackwood, Ebony, Karcomthaly, Sandalwood; should they carry any timber without the limits of the grant, it will be subject to the payment of kuttikanom or customs duty or both, as the case may be, in the same way as timber ordinarily felled”.
  • 10. We think that if title to the reserved trees passed to the grantees, a provision of this nature would have been quite unnecessary. There was no purpose in stating that the grantees will be free to appropriate the reserved trees for consumption within the limits of the grant, if title to the trees passed to the grantees; the provision is a clear indication that the grantees were allowed to cut and appropriate the reserved trees for consumption within the limits of the grant as a matter of concession.”

It was pointed out –

  • Travancore Pattom Proclamation of 1040 (1865), which conferred full rights on tenants of pandarapattom land. They have no application to the land or trees comprised in grants for cultivation of coffee or tea (under Rules for the sale of Waste Land on the Travancore Hills dated 24th April 1865).

4. Thomas Philip v. Forest Range Officer – 1923 ‘Grant’ of Travancore Government

Grant made by the Travancore Government, in 1923 was considered in Thomas Philip v. Forest Range Officer, 2021-2 KerLT 578. The Chief Secretary to the Government of Travancore ‘granted’ land ‘for coffee or tea cultivation’. The fifth condition read as under:

  • “The full right to Royal trees within the grant is reserved and continues to vest in the Government. The Grantee shall be bound to take care of the Royal trees particularised in column 5 of the schedule hereunder written until they are removed or otherwise disposed of by the Government. The Grantee shall also be bound to deliver to the Government all ivory found and other Royalties produced in the land, and all captured elephants, and will be paid the regulated price for the articles of produce, and the regulated reward for the elephant, at the discretion of the Government.”

It was contended that the ‘ownership’ of the land was purchased by the petitioner’s father in 1941. He planted trees. The petitioner made an application in 2006 to the Forest Range Officer seeking NOC for felling rosewood trees and teak wood trees. It was denied in view of the fifth condition of title deed to the effect that the full right over all the trees in the properties were fully vested with the Government. The petitioner argued that the 1923 deed is not a grant, but a title deed. The Government Pleader argued that the property held by the petitioner is a grant which would come under the purview of the Kerala Grants and Leases (Modification of Rights) Act, 1980. In view of the said Act, 1980, the appropriation of teak, Blackwood, etc. were subject to payment of seigniorage at the rates specified. Section 4(1) of the Kerala Grants and Leases (Modification of Rights) Act, 1980, reads as under:

  • “4. Grantees and lessees to pay current seigniorage rates- (1) Notwithstanding anything contained in any law for the time being in force, or in any grant, lease deed, contract or agreement, or in any judgment, decree or order of any court, with effect on and from the commencement of this Act, every grantee and every lessee shall be bound to pay to the Government the seigniorage rates in force for the time being for the timber cut and removed from any land held by him under the grant or lease.”

On the basis of Jose v. State of Kerala, 2020 (2) KLT 560 and Manoj A.N. v. State of Kerala 2013 (3) KLT 649, it was argued for the State that the trees  came into existence subsequent to the assignment was also covered by the Act.

Relying on Gopi v. Tahsildar, 2002 (3) KLT 526, and  Majeed v. State of Kerala, 2006 (1) KLT 19, it was contended that that the rights obtained in terms of 1923 grant was not absolute. (The Government Pleader also relied on two unreported judgments – in W.P.(C) No. 804/2006 and Crl. M.C. No. 7347/2017).

The petitioner argued that the restriction was only in respect of the trees made mention in 1923 title deed and the trees sought to be cut and removed by the petitioner are those planted by the father of the petitioner. The Court held as under:

  • “But, the fifth condition quoted above would show that the grantee is bound to deliver to the Government other royalties produced in the land also and Government is expected to pay regulated price for the articles of produce. The term ‘other royalties produced’ would indeed include subsequently planted royal trees also…..
  • In view of sub-section (1) of Section 4 and the non-obstante clause therein, the petitioner is liable to pay seigniorage for the trees proposed to be cut and removed by him. The fifth condition in Ext.P1 (1923) will stand modified to the extent provided under Section 4(1) of the Act, 1980.”

The High Court concluded analysing the Ext. P1 (1923) Title Deed, Kerala Grants and Leases (Modification of Rights) Act, 1980, Kerala Preservation of Trees Act, 1986 and Kerala Promotion of Tree Growth on Non-Forest Areas Act, 2005 as under:

  • .(1) The fifth condition in Ext. P1 Title Deed will stand modified by the Kerala Grants and Leases (Modification of Rights) Act, 1980, as per which every grantee and every lessee shall be bound to pay to the Government the seigniorage rates in force for the timber cut and removed from any land held under the grant or lease.
  • (2) For cutting, uprooting or burning any tree falling within the definition of tree as contained in Section 2(e) of the Kerala Preservation of Trees Act, 1986, it is necessary to obtain previous permission of the Authorised Officer.
  • (3) Notwithstanding anything contained in any other law, except in respect of trees:
    • .(i) reserved by the Government at the time of assignment of such land, or
    • (ii) trees standing on any land notified under Section 5 of the Kerala Preservation of Trees Act, 1986 every owner of non-forest land shall have the right to cut and transport any tree, other than sandalwood tree standing on his land.”

Note: In this case, the expression “title deed” does not denote a document conferring full ownership. This can be clarified by the use of the phrase “title thereto” in the definition of ‘Prescriptive Easement’ under the Easement Act.

  • In Surendrasingh v. Phirosahah, AIR 1953 Nag. 205, a Division Bench (Sinha C.J. and Hidayatullah, J.) held that the pleadings in a case dealing with easement have to be very precise. Following passage was quoted from Peacock – “Law Relating to Easements in British India” Third Edn., at page 608:
  • “As an easement is not one of the ordinary rights of ownership, it is necessary that either Party claiming or relying on an easement should plead the nature of his title thereto so as clearly to show the origin of the right, whether it arises by statutory prescription, or express or implied grant, or the old common law method of a lost grant“. (quoted in: Ibrahimkutty Koyakutty v. Abdul Rahumankunju Ibrahimkutty, AIR1993 Ker 91, 1992 (1) Ker LT 775, (1993) ILR(Ker) 1 KER 331 (K.S. Paripoornan, J.)
  • No doubt, the words ‘title thereto‘ refers tile of ‘easement’ claimed; and the word ‘title’ was not used in the general sense now used (that is, absolute ownership) in the Indian Easements Act, 1882.

5. Padmanabharu Govindaru  v. The State of Kerala–  Coffee Planter under a Grant is not a Jenmi

Following passage from Sri T. Madhava Row’s Memorandum (Travancore Land Revenue Manual) regarding the origin and nature of Jenmom rights is quoted in the Judgment (Padmanabharu Govindaru  v. The State of Kerala, AIR 1963 Ker 86). Sri T. Madhava Row stated as under: 

  • “A Jenmi is often termed a landlord. But, it must be clearly  understood and also always remembered that a Jenmi though certainly a landlord, is a peculiar Kind or landlord. Any person, who holds a pattah from a Collector in a British District and under it holds from the British Government subject to Government tax more or less, is called a landlord in ordinary language. 
  • Even in Travancore, any coffee planter or indeed any ryot, who holds lands under a grant from the Sirkar, etc. , is or may be called a landlord. But, be it remembered, such landlords are not Jenmies
  • A Jenmi differs from such landlords in that he does not derive his title to lands from the Sirdar etc. His title to the Jenmom lands is inherent. He is, so far as his Jenmom lands are concerned, a little territorial sovereign in a limited sense. He is landlord of his Jenmom domain exactly in the sense in which this Sirkar is landlord of all the land it grants to planters and indeed to all ryots in general; in the sense in which the British government is landlord of all the Ryotwari lands of the East Coast Zillahs of the Madras Presidency.
  • It is necessary, in view to avoid errors and misconceptions, to familiarize the mind to this definition of t Jenmi. The origin of Jenmom property may be briefly explained here with a view to make the rights of jenmis clear. Kerala Desom   (in which Travancore is included) was originally conquered by Parasurama, and this great warrior parcelled out the conquered lands among a limited number of brahmins. The Brahmins then became territorial lords, each independent of the rest. From that early age, the lands have descended with the tenure almost unimpared. The lands so belonging to each Brahmin are said to constitute his Jenmom, and the Brahmin himself is called a jenmi. These lands, so long as they continue in possession of the Jenmi, are free of all taxation. To this day this exemption continues in full force.
  • Jenmom lands are precisely what are in Europe called allodial properties as contradistinguished from feudal. It must be clear from what has been stated that all the lands in Travancore belong to a body of jenmis. There are no lands that do not belong to some Jenmi or other. Be it remembered that the Sirkar itself is one of these Jenmis, it  having come to possess Jenmom lands by gift, purchase, eacheat, confiscation and other ways. It is only a great Jenmi, great in the sense that its jenmom property is extensive. If any person wants land in Travancore, he must obtain it from, and hold it of, some one of the body of Jenmis, i. e. , from the Sirhar, which is the chief Jenmi, or from some other Jenmi”. (pp. 2 and 3 of Travancore land Revenue Manual, Vol. IV)

Note: Padmanabharu Govindaru  v. The State of Kerala, AIR 1963 Ker 86 gives us “illuminative information as to the concept of ‘jenmom’” as pointed out in Harrisons Malayalam Limited v. State of Kerala, 2018 2 KerHC 719; 2018 2 KerLT 369 – though this decision was overruled by the larger Bench in Rev. Fr. Victor Fernandez Vs. Albert Fernandez, AIR 1971 Ker 168 :1971 KerLT 1).

6. Majeed v. State of Kerala Grant and the Right of Ownership

In  Majeed v. State of Kerala,(2006) 1 KerLT 19, the State demanded seigniorage under  Kerala Grants and Leases Modification of Rights Act, 1980. Petitioner was a person who purchased trees from Travancore Rubber and Tea Company Ltd. Disputes and questions arose in the light of of the Kerala Grants & Leases (Modification of Rights) Act, 1980. Admittedly there was originally a grant. The scope of ‘grant’ was disputed. The contention of the petitioner was that it was the free hold property. The court did not accept the argument.

  • The rejected contention was stated by the Court as under:
  • “The petitioner contends that the respondents have no authority to demand seigniorage in respect of the timber of the trees planted by the company, as the property in question granted in favour of the company is not a leasehold property, but a free hold property, as is revealed by the order of grant Exts. R2(i).”

Edavagais

Edavagai Chiefs of Edapally, Kilimanoor, Poonjar and Vanjipuzhawere the Vassals of the Travancore-Maharaja (Harrisons Malayalam Limited v. State of Kerala, 2018-2 KLT 369). In Harska Turst v. State of Kerala, ILR  1960 Ker 345, 1960 Ker LT 378, it is observed as under:

  • “ The Edavagais were petty kingdoms or principalities which remained independent or quasi independent until the consolidation of Travancore in the 18th century.
  • They were outside the State Ayacut and paid no land tax.
  • The Chiefs, however, in exercise of their ancient sovereign powers, collected Melvaram or Melvara Rajgbhogam from the jenmis inside the Edavagais (See: 1945 T. L. R. 581 and 728).”

The decision of the Settlement Officer for Poonjar Boundary Settlement with that of the Travancore Kingdom contained the following observation relating to the status of the Poonjar Chief. It reads as under:

  • “It is not necessary for the purpose of this enquiry to decide whether the Poonjar family ever had Sovereign rights. It is enough for my purpose to state that it is not possible that the Chief could have exercised any Sovereign rights since the invasion of Thekkumkoor by the Travancore Maharaja. The Chief has, since his Edavagai became included within Travancore territory, always been merely a jenmi and nothing more. Of course, I use that word in the sense of one who owns jenmam lands of the kind mentioned in paragraph 46, clause [2] of Mr. Rama Iyengar’s Memorandum, namely, lands which are entirely freehold and exempt from payment of any revenue to Government under any circumstances.” (See: Godavarma Valia Raja v. Bhoothi Swamiyar, AIR 1953 TC 408; ILR 1954 TC 109)

The lands in the following areas were recognized in Sirkar Accounts as Edavagas:-

  • 1.  Sreepadam.  
    • It comprised in 7 pakuthies in Chirayinkil Taluk.
    • These villages were originally hereditary domain of Ranis Attangal. Subsequently the sovereignty was transferred to Travancore Maha Raja.
    • Rent was collected from this land and accounted as public revenue.
  • 2.  Kilimanur.
    • It comprised in 2 pakuthies in Chirayinkil Taluk.
    • This land was granted to Kilimanur Koil Thampurans.
    • The land revenue was assigned to the family of Koil Thampurans.
  • 3.  Edappally.
    • It comprised in Edappally North and Edappally South Pakuthies in Alangad Taluk; Thrukkunnappuzha in Karthikappally Taluk; Kallooppara in Thiruvalla Taluk; and Vazhakkulam in Kunnathunad Taluk.
    • The land revenue was assigned to the Chief of the Edappally Edavaga.
  • 4. Vanjipuzha
    • The administration and collection of rent from the tenants in this Edavaga was left to be settled by the Chief in 3 Pakuthies in Peermedu Taluk.
  • 5.  Poonjar
    • A Pandya King, Manavikrama Kulasekhara Perumal, had to flee from Madurai, in the 12th century after a dispute over Madurai. He purchased, after selling his possessions, the Western hills of the Western Ghats (Poonjar) from Thekkumkur Rajas and established a Principality.
    • By 15th Century, Marthanda-varma of Travancore had annexed  Thekkumkur and Vadakkumkur, to Travancore. During 1749-50 Poonjar Principality was annexed to Travancore.  Thereafter, the Poonjar Chief became the vassal of Travancore.

Edavagai Rights Acquisition Act, 1955

‘The Edavagai Act intended acquisition and extinguishing of all Edavagai rights over the Edavagais of Edapally, Kilimanoor, Poonjar and Vanjipuzha’ as observed in Harrisons Malayalam Limited v. State of Kerala, 2018-2 KLT 369. The Edavagai rights were that vested in the –

  • Edapally Swaroopam,
  • Kilimanoor Kottaram,
  • Poonjar Koickal and
  • Vanjipuzha Madom.

History of Land Tax Collection from Edavagai Lands

Harska Trust v. State of Kerala, ILR  1960 Ker 345, 1960 Ker LT 378, clearly lays down the history. It is pointed out that the collection of Basic-Tax was first introduced by the Travancore Land Tax Proclamation, 1121. Sec. 6 of the Proclamation provided that the Proclamation would not be applicable to certain classes of lands. One of those classes was-

  • “Freeholds (Adhikara Ozhivus) belonging to the Edavagais of Edapally, Kilimanoor, Vanjipuzha and Poonjar”. 

The reason for non-collection of Tax from Edavagais was also laid down in this decision as under:

  • “Edavagais were petty kingdoms or principalities which remained independent or quasi-independent until the consolidation of Travancore in the 18th century. They were outside the State Ayacut and paid no land tax. The Chiefs, however, in exercise of their ancient sovereign powers, collected Melvaram or Melvara Rajabhogam from the jenmis inside the Edavagais (See 1945 TLR 581 and 728).”

As pointed out in Harska Trust v. State of Kerala, ILR  1960 Ker 345, the next enactment was the Travancore-Cochin Land Tax Act, 1955 which came into force on 1-4-1956. Sec. 17 of the Land Tax Act, 1955, repealed the Travancore Land Tax Proclamation, 1121.

The Act provided no exemption from tax to lands situated within the Edavagais. The reason thereof was the already promulgated Edavagai Rights Acquisition Act, 1955. It is laid down in Harska Trust v. State of Kerala, ILR  1960 Ker 345, as under:

  •  “8. The rights of the Poonjar Chief were acquired by the State under the Edavagai Rights Acquisition Act, 1955, which came into force on 1-1-1956. Edavagai rights is defined in Sec. 2(5) of that Act as follows:
  • Edavagai rights means all the rights and privileges vested in
    • the Edapally Swaroopam,
    • the Kilimanoor Kottaram,
    • the Poonjar Koickal and
    • the Vanjipuzha Matom
  •  relating to heir respective Edavagais and includes in the case of the Poonjar Koickal the right to receive Melvaram in respect of lands situate within the Edavagai of Poonjar.
  • 9. Sub-s.(1) of S.3 of the Act provided that on and from its commencement, the privileges of the Edapally Swaroopam and the Poonjar Koickal relating to Excise Revenues of the Edavagais of Edapally and Poonjar shall stand extinguished, and sub-s.(2):
    • “All the Edavagai rights of the Edapally Swaroopam and the Poonjar Koickal other than those mentioned in sub-section [1] and all the Edavagai rights of the Kilimanoor Kottaram and the Vanjipuzha Matom over their respective Edavagais, and all rights, title and interests vested in the Chiefs, in respect of waste lands or thanathu lands which have been assigned by them on Kuthagapattom or other like demises,
    • and all rights, title and interests vested in the Chiefs, in respect of waste lands or thanathu lands which have not been so assigned by them are hereby acquired by Government, and all such rights, title and interests shall vest in Government free of all encumbrances.”
  • Sub-sec. (2) of Sec. 4 fixed the compensation payable by the Government to the Edavagais for the acquisition of the rights, title, and interests mentioned in sub-s.(2) of S.3 at the amounts as specified in the Schedule, being 8 1/3 times the annual income of the respective Edavagais less five per cent for collection charges. It is clear from these provisions that what was acquired was the Chiefs rights, and it is difficult to understand how the acquisition of those rights can possibly affect the right of the State to tax the lands concerned.
  • 10. The right to basic tax is in no sense a manifestation of the Chiefs right to Melvaram. It is a right founded on the Constitution and not on the acquisition of the rights of the Edavagais.”

Edavagai Rights Acquisition Act, did Not change Character of Holdings

The object behind the act is very clear – it was only to ‘acquire’ the rights of the Edavagais; it was not to change the character of the land held by the tenants or purchasers.

Lease-holdings of the Edavagais continued as Lease holdings, but with liability to pay Tax.

In Harrisons Malayalam Limited v. State of Kerala, 2018-2 KLT 369, it is pointed out-The Edavagai Rights Acquisition Act, 1955 did not change the character of the holdings and it only interfered with the right, title and interest of the respective Edavagais; they made made to vest with the Government. The effect was that the liability of the tenants to pay rent or other levies to the Edavagais stood altered as liability to tax imposed by the Government.

The 1955 Act is analysed in Harrisons Malayalam Limited v. State of Kerala, as under:

  • “There was also a saving clause in Section 11 which exempted from vesting, those lands held by the Chiefs as a Jenmy or as a pattadar under the Government and those held by the families, already settled and assessed, as also those lands in the direct possession of the Chiefs and any of the members of the respective families.”

Then it is observed by the High Court of Kerala as under:

  • “Hence land existing on a lease from either of the Edavagais or as freehold on valid purchase made, continues in the possession and ownership of the land holder/lessee and the liability to payment of rent or other levies to the Edavagais would stand altered as liability to tax imposed by the Government. This does not change the character of the holdings and only interferes with the right, title and interest of the respective Edavagais; which stands vested with the Government.
  • It was pointed out-
    • “The ‘Edavagai Rights’ is defined under sub-section (5), as the rights and privileges which vested in the families and ‘Chief’ was defined under sub-section (6) as the senior male member of the respective families, in whom the management of the family is vested.”
    • “The right, title and interest within the respective Edavagais, existing in favour of the families and the Chiefs, by the enactment, stood vested in the Government, free of all encumbrances.”
  • Note: Here the High Court of Kerala (in Harrisons Malayalam Limited v. State of Kerala, 2018-2 KLT 369) did not consider the effect of grant.

Did Edavagai Rights Acquisition Act, 1955 confer Title to ‘Registered Holders

No.

Sec. 8(1) of the Edavagai Rights Acquisition Act, 1955 reads as under:

  • “On and from the first day of April 1956, every registered holding in an Edavagai shall be deemed to be a holding registered under Government, and every registered land holder thereof shall be deemed to be a registered holder and pattadar under Government, and the holding shall be liable to basic tax imposed by Government, from time to time, in lieu of the rent assessed thereon at the settlement of the Edavagai.

If we take the words, in Sec. 8(1) – that, “in lieu of the rent assessed thereon at the settlement of the Edavagai” – as that used by the legislature purposefully, we have to say that no title is conferred inasmuch as the lease (associated with rent) is not given-a-go-bye. From Harska Trust v. State of Kerala, ILR  1960 Ker 345 (note the words – “But for Sec. 8(1) of the Edavagai Rights Acquisition Act, 1955, both the basic tax and the Melvaram would have been payable“), it appears that this is the view that is taken in this decision. It reads as under:

  • “17. It is settled law that if a right has been acquired by virtue of a statute, it is not necessarily taken away by the repeal of that statute (See: AIR 1950 Pat 505). What the argument fails to note is the fact that it is not the repeal of the Travancore Edavagai Act, 1109, which attracts the basic tax to these lands but the positive provisions embodied in the Land Tax Act, 1955. But for Sec. 8(1) of the Edavagai Rights Acquisition Act, 1955, both the basic tax and the Melvaram would have been payable. That sub-section restricts the claim to basic tax.”
  • 18. We are unable to hold that the impugned imposition of the basic tax is in any way ultra vires of the powers of the State under the Constitution or violative of any legal right vested in the petitioners before us. It must follow that these petitions have to be dismissed and we do so with costs, advocates fee Rs. 100 in each of the two petitions.

It can also be seen that the purport of the act is not conferring tile to the ‘registered holdings’.

What is Patta or Pattayam?

Patta is a Certificate or Document issued by the Government

  • (i) to tenants/grantees/licencees of Govt. property, for cultivation, residence etc., and
  • (ii) to persons to whom ownership is conferred upon Govt. property.

Following decisions speak as to patta issued to Tenants –

  • Nature Lovers Movement Vs. State of Kerala, AIR  2009 SC 1573
  • Kamala Bakshi Vs. Khairati Lal, AIR  2000 SC 1808
  • Glanrock Estate (P) Ltd Vs. State of Tamil Nadu, AIR  2010 SC 795 (Ryotwari Patta).
  • M Chinnathambi Alias Muthiah Vs. Ponnathal, 2010-1 Mad WN 725;
  • Umapathi, K.  Vs. Addl. Collector, Thanjavur, 2000-2 Mad LJ 725
  • KS Shanthilal Vs. Sarojini Ammal, 1996-1 Mad LJ 562, (Ryotwari Patta)

Lessee is Referred to as Pattadhar

  • In Revenue documents (‘record of rights’) of various States in India, the lessee is referred to as pattadhar.
  • Several enactments also refer patta as lease-document.

‘Patta’ (or ‘Pattayam’) in Kerala

  • Now-a-days ‘patta’ is generally used to show absolute Title in Kerala.
  • But, Patta, as a Revenue-Term, does not express absolute Tile, in Kerala.
  • Kerala Forest Act, 1961 refers to patta to denote grant or lease.
  • It was used in erstwhile Travancore, in early times to signify Government- lease of lands; and subsequently it was used also to show conferment of Janmam rights also.

Kerala Government Land Assignment Act, 1960

From The Kerala Government Land Assignment Act, 1960, Sec. 2(2) and 8 it is clear that “Patta” is issued by the Government on assignment of land  including that on lease or grant of licence.

Section 2(2) of the Land Assignment Act, 1960 reads as under:

  • “2. Definitions.- (1) ….
    • (2). In this Act, unless the context otherwise requires,- (a) assignment includes a transfer of land by way of lease and a grant of licence for the use of land.”

Section 8 of the Land Assignment Act, 1960 reads as under:

  • “8. Assignment to take effect with restrictions, conditions, etc., according to their tenor .- All the provisions, restrictions, conditions and limitations contained in any Pattah or other document evidencing the assignment of Government land or of any interest therein shall be valid and take effect according to their tenor, notwithstanding any law for the time being in force or any custom or contract to the contrary.”

Maximum limit to be assigned for cultivation

Rule 5 of the Kerala Government Land Assignment Rules, says as under:

  • “5. Maximum limit to be assigned for cultivation.- (1) The extent of land that shall be registered in favour of a single family for personal cultivation by members of the family shall not ordinarily exceed –
  • (a) in the case of unoccupied lands, not more than fifty cents of land, whether wet or dry, in the plains and not more than one acre of wet or dry lands in hilly tract;
  • (b) in the case of lands held on lease, whether current or time expired or by way of encroachment not considered objectionable, the lessee or the encroacher as the case may be will, be eligible for assignment of not more than 50 cents of land, whether wet or dry, in the plains, and one acre of land, whether wet or dry in hilly tracts. Land, if any, held in excess of this area shall be surrendered to Government and no compensation shall be payable for the lands so surrendered.
  • (2) When a family owns or holds any land over which it has proprietary right or has security of tenure, only the balance of extent of Government land necessary to make up the extent admissible under sub-rule (1) shall be granted to it on registry.
  • Explanation.- For the purposes of this rule:-
  •        (i) xxxxxxxxxx
  •        (ii) xxxxxxxxxx
  •        (iii) for the purpose of calculating the extent of land that may be assigned to a family, the total extent of land possessed or held with proprietary right or fixity of tenure by the head of the family and also the members of the family both individually and collectively shall be taken into account. Assignment made in favour of a family under these rules shall, for the purpose of calculating the maximum extent that may be so assigned, include assignment made to members of the family both individually and collectively, the total extent so assigned not exceeding the maximum area that may be assigned to that family. The area under encroachment by a member of a family shall, for the purpose of these rules, be deemed as the area under encroachment by the family.” (Quoted in: C. A. Abdul Rahim v. District Collector, Ernakulam, 2013-3 KHC 790; 2013-4 KLT 514)

Assignment for house site and for beneficial enjoyment

Rule 6 of the Land Assignment Rules reads as under:

  • “6. Assignment for house site and for beneficial enjoyment.-       (1) The extent of Government land that shall be registered in favour of a family as house site shall not exceed fifteen cents (6.072 ares). The assignee shall be liable to pay land value for house sites at the rate of Rs.200 per cent.
  •        (2) The extent of Government land that may be granted on registry when the same is indispensably required for the beneficial enjoyment of adjoining registered holdings shall not exceed, in the case of one registered holding fifteen cents (6.072 ares)
  •        Note.-(1) The authority competent to assign land for beneficial enjoyment shall be the Revenue Divisional Officer. He may pass order of assignment in such cases only after personally satisfying himself that the land is absolutely necessary for that purpose.
  •        xxxxxxxxxxxx”

Duty is cast on the Panchayath to preserve the Pond

In Kuriyakose Thomas v. Ombudsman For Local Self Government Institutions,
2014-1 ILR(Ker) 366; 2013-4 KHC 455; 2013-4 KLJ 440; 2013 4 KLT(SN) 112, it is observed as under:

  • “However, if there is an existence a pond, then there is no requirement of assignment since it vests in the Panchayath under Section 218; in which case a duty is cast on the Panchayath to preserve the pond.”

Hon’ble Supreme Court of India in the judgment reported in A.I.R. Supreme Court Weekly 2001 Page 2865 (Hinch Lal Tiwari Vs. Kamala Devi).

       4. I perused the judgment of the Hon’ble Supreme Court of India. In that decided case, assignment of lands to various individuals was questioned by an individual on the ground that lands classified as pond is of public utility and meant for public use and therefore no part of it could have been allotted in favour of any person. It was also argued that under the Statutory Act in force in Uttar Pradesh, lands classified as pond was not one among the classes of land that could be allotted. The Departmental Authorities cancelled the allotment and on being challenged by the allottees, the High Court gave the relief in favour of some of the allottees in respect of certain extent of land and rejected in respect of other extent. In the above stated facts, the Hon’ble Supreme Court of India had held as follows:

       “13. It is important to note that material resources of the community like forests, tanks, ponds, hillock, mountain, etc. are nature’s bounty. They maintain delicate ecological balance. They need to be protected for a proper and healthy environment which enable people to enjoy a quality life which is essence of the guaranteed right under Article 21 of the Constitution. The Government, including revenue authorities, i.e., respondents 11 to 13, having noticed that a pond is falling in disuse, should have bestowed their attention to develop the same which would, on one hand, have prevented ecological disaster and on the other provided better environment for the benefit of public at large. Such vigil is the best protection against knavish attempts to seek allotment in non-abadi sites”.

 The Supreme Court of India held as regards assignment of a pond as under::

  • “14. …. The State including respondents 11 to 13 shall restore the pond, develop and maintain the same as a recreational spot which will undoubtedly be in the best interest of the villagers. Further it will also help in maintaining ecological balance and protecting environment in regard to which this court has repeatedly expressed it’s concern. Such measures must begun at the grass-root level, if they were to become the nation’s pride.” (Quoted in: Thyagi Ponnurangam Dwellers Public Welfare Association v. The District Collector & Others, 04 Nov 2003: 2003 0 Supreme(Mad) 1738)

In Thyagi Ponnurangam Dwellers Public Welfare Association v. The District Collector & Others, 04 Nov 2003: 2003 0 Supreme(Mad) 1738 it is held as under:

  • “5. Therefore it is clear from the above judgment that a duty is cast upon the State to protect and preserve water courses, ponds, tanks and other lands so as to avoid ecological imbalance. The present case comes within one of the lands to be preserved by the State. As already noted, the State Government, has banned allotment of such lands to any individuals. Therefore finding that the petitioner has no legal right to compel the respondents to recognise their possession and issue pattas, the writ petition stands dismissed. The State Government is, therefore, directed to take expeditious steps to remove the encroachment in the lands concerned and restore it to the nature’s fold.”

Read Blog: What is Patta or Pattayam?

‘Holder of property’ – ‘Pattadaran’

In Kerala, in the Land Tax Act Rules, 1972 and the Tax Receipt, describes the ‘holder of property’ as ‘Pattadaran’. It is definite that he is not the title holder.

Transfer of Registry Rules (Kerala) makes it clear – Patta and Title Different Concepts. In Moideen v. Village Officer, 9 January, 2019(Alexander Thomas, J.) Kerala High Court pointed out with reference to Rule 16 of the Transfer of Registry Rules that the mutation or acceptance of basic land tax, by itself, will not confer or extinguish title and that in accordance with the decisions of the Civil Court pattas will be revised from time to time. It is observed further as under:

  • “Rule 16 of the Transfer Registry Rules envisages that summary enquiry and decision thereon envisaged under those rule is only an arrangement for fiscal purposes and does not affect the legal rights of any person in respect of the lands covered by the decisions in transfer of registry cases and the prescribed legal rights is always subject to adjudication by Civil Court and pattas will be revised from time to time in accordance with such judicial decisions.”

In Cochin also – “Patta” denoted Lease

  • ‘Patta’ was used in Travancore & Cochin to denote Government-recognition of both lease lands and Janmam lands.

In Harska Trust v. State of Kerala, ILR  1960 Ker 345, it is pointed out as under –

  • ‘According to the petitioners, the issue of the Patta under that Act in respect of these lands was something duly done and the repeal of the Act cannot in any way affect the right granted under that Patta, namely, the right to continue in possession of the lands till the end of 1144 on payment of Rs. 2,665 (about) per year as rent against the basic tax now demanded of over Rs. 12,000 per year’.

Purambokes

Purambokes were unassessed Govt. lands connected with public works or used or reserved for public purposes, such as public road, and margins within their defined boundaries, public lanes and pathways, heads and banks of Rivers, Irrigation and drainage channels, Lakes and Backwaters, Markets, Burial-grounds, and Landing Bhats.

  • Lands acquired for public purposes were also included under the head ‘Purambokle’ in Revenue Registers.
  • The functions of the Land Revenue Department were to prevent encroachment.
  • Where an unobjectionable encroachment, the head of the land was changed to ‘Tharisu’.
  • Objectionable encroachment was punished with fine and charged to prohibitory assessment till retracted.
  • Land Revenue Department granted leases of poramboke for putting up shops in Markets and given permission to occupy the land in Festivals.

Kuthakapattom – Travancore Land Revenue Manual

In Travancore Land Revenue Manual, Vol. III, Part I, Chap.6 discusses about Kuthakapattom. Para 67 defines Kuthakapattom as follows:

  • Kuthakapattom means and includes
    • Lease of Government land which cannot be permanently assigned away.
    • Lease of trees standing on Government land.
    • Lease of Poramboke land on fixed ground rent for putting up shops in bazaars and markets.
    • Lease of Government land for temporary occupation in connection with fairs, festivals, marriages, public entertainment, etc.”

Para 68 of Chap. 6 of the Manual discusses the conditions of a lease with or without limit of time which is as follows:

“68. Conditions of a lease with or without limit of time:

  • .(i) A lessee should not put up permanent structures, sink wells, erect walls, plant more trees, open roads or pathways on the lands leased or do, or aid the doing of any act which will injuriously affect the land or trees directly or indirectly or diminish their letting value, or which will obstruct the Government servants in the discharge of their duties or in any way prejudice the interests of the Government, or of the public. He should not in any way interfere with, or make any alteration in, the lie of the land.
  • (ii) The lease shall be revocable at any time, if the land or tree or both is required for any Government or public purposes.
  • (iii) When a lease relates to trees alone, (1) the lessee should not cultivate the land on which the trees stand, and (2) the lessee should manure the trees and keep them in such a condition as will not diminish their letting value or yielding capacity.
  • (iv) The lessee should take care of the property, if any, included in Schedule II appended to the grant, but shall have no right of enjoyment over the same. He should intimate the Tahsildar if any tree on the property withers or is blown down or if any damage is caused to them.
  • (v) If any of the conditions laid down above are not fulfilled or violated by a lessee, the leasehold could be resumed by the officer who sanctioned the lease, irrespective of the nature of the lease”. Para 71 of Chap.6 of the Manual states that on the termination of a lease, the lessee should surrender possession of the property leased. If he refuses or omits to do so, he should be considered as a tenant holding over liable to be proceeded against and evicted under the provisions of Regulation IV of 1901. Para 73 of Chap.VI of the Manual discusses about the preparation of grant in Form C.”

Kuthakappattam – Conditions

In Kozhencherry Grama Panchayat v. Mariamma Chacko, ILR 2001-2 Ker 251; 2001-1 KLT 880, after referring Travancore Land Revenue Manual it is stated as under:  

  • “6. The Kuthagapattom Rules which were made in exercise of the powers of the Government Land Assignment Regulation, Regulation III of 1097, govern the Kuthakapattom prior to 1947. R. 17 states that immediately after a lease for a definite period is sanctioned by the Tahsildar, he shall issue a notice to the party concerned, intimating the nature of the order and calling upon him to produce an amount not less than one year’s rental as security for proper conduct of the lease within a period of 15 days from the date of notice. Form C is the form of Kuthagapattom Grant and it prescribes the conditions. Condition No. 19 states that, on the expiry of the lease, or in the event of the cancellation of the lease, or in the event of resumption of the property, the lessee shall, unless the he has taken a further lease, surrender the property in tact to the Proverthicar. If he does not so surrender, he will be considered a tenant holding over liable to be proceeded against and evicted under Regulation IV of 1091. He will not however be entitled to compensation for any trees planted or for any improvements that he might have made on the land or for any structures raised by him thereon and not removed.”

Kuthakappattam Rules, 1947 v. Kerala Land Assignment Rules, 1964

In K.B Augustine v. State of Kerala, 2016-2 KLJ 18; 2016 3 KLT(SN) 15, a question arose –

  • Whether a land leased under Kuthakappattam Rules, 1947 (under Government Land Assignment Regulation, No. III of 1097), is eligible for assignment under the Kerala Assignment Rules, 1964 (under Kerala Land Assignment Act, 1963)?

It was contended that such assignment of Kuthakappattam land is against the provisions of both the Kerala Land Assignment Rules and the Kuthakappattam Rules. The High Court pointed out as under:

  • “From a mere reading of clause (iii) of Rule 1A it is clear … what is exempted is only those assignment of Government lands under any special rules other than the Kuthakappattam Rules, 1947. …. Since it is the admitted case of the Government that the land is covered under the Kuthakappattam Rules, 1947, it is only to be held that a land covered by a Kuthakapattam lease will not come under the exclusion under Rule 1A of the Kerala Land Assignment Rules. The respondents have not been able to point out any provision in the Kuthakappattam Rules, 1947, whereunder such land cannot be the subject matter of assignment either under the Kerala Assignment Rules, 1964 …”

Tharisu or Assessed Waste

Tharisu was the waste lands ‘at the disposal of the Govt’ and available for ‘extension of cultivation’. It was distinguished from poramboke. Unauthorized occupation of tharisu was also punishable.

  • In K. P. C. Properties represented by its Managing Partner Jerald Jacob v. State of Kerala, 2014 3 KLT(SN) 31, it is observed as under:
  • “The said land was classified as ‘tharisu’ in Government records and was treated as assignable lands.”

Transposition ‘tharishu’ to ‘puthual-registry’:

  • Detailed procedure was prescribed for transposing ‘tharishu’ to ‘puthual-registry’ in the Revenue Manuel, Under the Puthuvel Rules (1097 ME : 1922).

Puthuval (Puduval) Assignment Under the Puthuvel Rules (1097 ME : 1922)

Puduval Rules were framed under Section 7 of the Government Land Assignment Regulation, III of 1097 (Chitharanjan v. State of Kerala, 24 January, 2025, 2025:KER:5422).

(Also in page 94 of the Report of the Special Officer & Collector, M.G. Rajamanickam IAS, No. GLR – (LR) – 1/2016/BRT/Co. Dated: 04.06.2016).

Puduval lands can be disposed of only in accordance with the aforestated Rules. In other words, insofar as the property is described as Puduval land, the same is required to be assigned as provided under Rule 13 of the Puduval Rules.

It was sale/lease to augment the King’s treasury and also to distribute the lands for cultivation among subjects.

  • Puthuval  lands  were  lands  (i) not assessed  and  registered  in  the  Sirkar  accounts  in  the  name  of  any  individual  and (ii) not  governed  by  Regulation  II  of  1040 (1865).  The lands, when remained unregistered, were the absolute property of GovernmentTitle was conferred to individuals by the Grant or assignment by the Government (under Puduval Rules). 
  • Under the Puthuvel Rules (1097 ME : 1922) it had to be done by ‘public auction’ or by ‘assignment otherwise than by auction’.

Rule 13 speaks about “Assignment  of  Unoccupied  Lands“. It reads as under:

  • “13.  (i)  All  unoccupied  lands  available  for  registry  shall,  subject  to the  provisions  of  Rules  24  to  28,  35  and  46  (i)  and  (ii)  and unless  otherwise  directed  by  Government,  be  sold  by  public auction  together  with  the  reserved  trees  standing  thereon, at  an  upset  price  to  be  fixed  in  each  case  by  the  Officer  conducting  the  auction.  The  upset  price  shall  he  equivalent  to the  estimated  value  of  the  reserved  trees  standing  on  the lands  plus  the  estimated  Tharavila  according  to  the  importance  of  the  land,  fixed  under  Rule  5  or  9  as  the  case  may be,  and  the  cost  of  demarcation  and  survey.”

Rule 16 reads as under:

  • “16.  On  the  day  fixed  for  the  sale  of  the  land,  the  land  shall,  as  proclaimed,  be  put  up  to  auction,  block  by  block,  if  it  consists  of  more  than  one block,  and  sold  to  the  highest  bidder  above  the  upset  price.  Provided  however  that  no  single  person  should  be  allowed,  directly  or  indirectly,  to  bid for  more  than  50  acres  of  the  land  advertised  for  sale.  The  sale  shall  be conducted  subject  to  the  following  general  conditions:-
  • (i)  The  highest  bidder  above  the  upset  price  shall  be  declared  to be  the  purchaser  of  the  land,  and  if  any  dispute  arises  between  two  or  more  bidders  at  the  same  price,  the  land  shall be  immediately  put  up  to  auction  again  at  the  last  preceding  undisputed  bid  and  sold…….”

In the Puthuval Rules there was provision for sale of lands below 5 acres, above 5 acres and also ‘Concessional Registry of Lands’ for the assignment to the members of the depressed classes or to indigent families belonging to other communities, on application made to the Tahsildar of the Taluk. 

Sub rule (iii) dealt with sale of area below 5 acres it reads as under:

  • “(iii)  If  the  entire  area  of  the  block  is  5  acres  or  less,  the  Tahsildar  need  not  make  a  requisition  to  the  Officer  referred  to above  but  shall  get  the  land  sub-divided,  if  necessary,  and demarcated  and  surveyed  by  the  Provertikar  and  a  sketch, drawn  to  scale,  prepared  by  him.  This  sketch  should  be cheeked  on  the  ground  by  the  Tahsildar  or  the  Assistant Tahsildar.”

If the encroachment was one where ‘Registry is desired’, the Rules provided for an application be taken from the occupier and dealt with under Puthuval rules.  If registry was ‘not desired’ or if puthuval registry was refused, steps could have been taken against the encroachment.

Chitharanjan v. State of Kerala, 24 January, 2025, 0n Puduval lands

In this decision it is held as under:

  • “9. Furthermore, this Court notices that the Government has produced the prior documents as regards the petitioner in W.P(C) No.25830 of 2010 along with a memo dated 13.11.2024. A reference to the said document – partition deed No. 460 of 64 – shows that the property in Survey No.2211 is recorded as “Puduval” land. In this connection, reference requires to be made to the Puduval Rules framed under Section 7 of the Government Land Assignment Regulation, III of 1097. Puduval lands can be disposed of only in accordance with the afore Rules. In other words, insofar as the property is described as Puduval land, the same is required to be assigned as provided under Rule 13 of the Puduval Rules. The prior deeds in support of the case set up by the petitioners do not disclose the existence of any such assignment with respect to the properties in question.
  • 10. As regards the claim of the petitioners in W.P(C) No. 30260 of 2010, this Court notices that the petitioners have attempted to trace the title of the properties in question to the decree of the Principal Sub Court, Attingal which was later purchased by one Neelakanda Pillai as per sale deed No. 2099 of 1940. The learned Government Pleader has produced the afore- sale deed along with a memo dated 29.10.2020. The said documents also show that the property in question is ‘Puduval’ land and therefore, the requirement of an assignment is essential. But as in the connected case, here also the petitioners have no case that the documents relied on by them show that the property was covered by an assignment to support their case.
  • 11. On the whole, the dispute in these writ petitions has to be considered with reference to the description of the properties falling under old survey No. 2211 in the settlement register. As already noticed, the settlement register describes the property as “Puramboke”.
  • The petitioners, it is true, have contended that the survey numbers as per Exts.P1 to P4 are not seen described as “Tharisu” in the BTR at Ext.R1(b) and Form No.7 prepared by the Survey Authority at Ext.R1(d). But as already noticed, the prior documents produced by the Senior Government Pleader, along with the memo as noted earlier, strike at the root of the contentions raised by the petitioners. In view of the discussions made above, I am of the opinion that the contentions raised by the learned Senior Government Pleader with respect to the malpractices committed, cannot be brushed aside.”

Thanathuchitta lands

It was virtually the Govt. land or land at the disposal of the Government.  It was occupied by Govt. institutions or sirkar temples (not included in poramboke) or for Govt. purposes.  Irippukaram was fixed upon this land.  The Sirkar was treated as Pattadar though no patta was actually issued.  It was analogous to registered lands, but Sirkar itself was in position of pattadar.  These lands were not opened for all sections of public.  They cannot be transferred to poramboke or tharisu.

  • These lands fall under ‘Govt. lands’ other than poramboke in Land Conservancy Regulations.  It was the duty of the Land Revenue Department to prevent encroachments.

Reserved Forests

It was the land under Forest Department.  It comes under Forest Regulations of 1068 (1893).

  • Land Revenue Department co-operate with Forest Department in case of trespass.

Reserved lands or proposed reserves

These lands were proposed for reservation under the Forest Regulations. 

  • Land Revenue Department co-operate with Forest Department in enforcing the provisions.

Unreserved lands

It was also under the control of Forest Department.  Most of such lands were available for extension of cultivation.

Land Tenures.

Revenue Records – Maintained Promptly

The Land Revenue Department was one of the main departments of the Travancore Government.  The ownership remained with the Jenmies and Sircar (Government). The agriculturists, who formed majority of population, had to pay various kinds of remunerations to the Janmies and the Sircar (Government),  based on the nature of tenancy and the nature of the ‘Jenmam (Janmam) right’. The lease arrangements were known by various nomenclatures based on the conditions of tenancies. Several enactments were made for proper collection of Taxes, and management of the Govt. lands and the lands upon which the tenants toiled. The Revenue Records were prepared and maintained promptly.

Various Land-Tenuers

The tenures, according to the Travancore Land Revenue Manual, Volume III (1915), fall under two main heads:

  • (1) Sirkar or Pandaravaga;
  • (2) Janmam.

760 Types of Tenures in Travancore

In ‘Historical Introduction to the Kerala Land Reforms Act and the Working of the Land Tribunals’, PN Prabhakaran Pillai, Cochin University Law Review 1, No. 1 (1974), says as under:

  • “The land tenures that existed in the former Travancore area were very complex and special tenures and sub-tenures were numerous It may be seen that there were 760 types of tenures including sub-tenures in Travancore area alone. At the last Revenue Settlement’, an endeavour was made to systematise and simplify the tenures as far as possible. After the settlement, the number of tenures were reduced to a considerable minimum. The numerous tenures which have been recognised at the settlement may be generally traced to one or other of main two heads, viz., Sirkar or Pandaravaka and Jenmom.”

In settlement (1910), numerous tenures had been recognized.  For practical purposes, as per the Travancore Land Revenue Manual, the tenures were classified as under:

  • 1. Sirkar or Pandaravaga
  • 2. Sirkar Devaswom vaga
  • 3. Kandukrishi
  • 4. Sreepadam vaga
  • 4. Sree pandaravaga
  • 6. Janmam

1. Sirkar or Pandaravaga:

This tenure represents Sirkar as the landlord.  The tenures fall under the following heads:

  • a)  Pandarapattom,
  • Pandarapattom was originally in the nature of lease without any proprietary or transferable right.  By the royal proclamations, the holders of these lands were given with full proprietary rights and declared to be private, heritable and transferrable property.  Puthuval lands came under this tenure. 
  • b)  Otti
  • It was originally in the nature of a mortgage.  It stood as a real or constructive loan by the State.  Interest was deducted from Pattom to be paid by the holder.  He had also to pay Rajabhogam (tax).
  • c)  Enams
  • Enams were service enams or personal enams.  Service enams were inalienable.  It continue as long as the holder was in service.  Personal enams were given to support individuals or families.  Such properties could have been transferred by the holders.
  • d)  Viruthi
  • It stood analogous to service enams.  But had permanency if the holder continued his service regularly.  When he died the holding passed to legal heirs subject to certain payments.
  • e)  Special tenures
  • It was in the nature of enam which received special treatment.
  • f)  Karamolivu
  • All Lands except janmam included under this head.  The land was tax-free.

2. Sirkar Devaswom vaga

  • The lands under this head were originally janmam lands or private property of Devaswoms.  They were held on venpattom tenure.  Later on, Sirkar took over the Devaswoms and the lands were treated as Sirkar lands.  Subsequently, Sirkar Devaswom lands were separated from Sirkar lands; and separate accounts were kept.

3. Kandukrishi

  • It was the home-farms or the private property of the sovereign.  The tenants had no right in such properties.
  • In Neelakanta Pillai v. Madhavan Nair, 1965 KLT 537 the court surveyed the Manuals and the judicial decisions and found that the occupant of Kandukrishi lands had no rights of any kind in the lands cultivated by him (See S.28 of the Revenue Settlement Proclamation of 1061; the Travancore Land Revenue Manual Vol. 3, pages 15 and 16, Para.23 and 24). The court referred to Subramonian Kesavan Empran v. Krishnan Govindan Plappalli (22 TLJ. 968 at p. 976 (F.B.) which reads as under:
  • “This being the correct position in regard to tenancies-at-will generally, the position is stronger in respect of Kandukrishi lands, for as the Full Bench observed in 33 T.L.R. 242, such tenants are “according to the traditional policy of the Crown of not capriciously disturbing possession, left to enjoy Kandukrishi lands for generations” and their rights have except so far as regards the liability to eviction at the will of the Sirkar been always regarded as valuable property. It is therefore not possible to hold that the tenant of such lands has no right or interest at all in them as contended by the respondent’s learned Vakil …..It is therefore impossible to hold that he holds these lands as a mere tenant-at-will with no powers of disposal at all over them.”

4. Sreepadam vaga

  • Sreepadam lands were-
    • (i) thelands comprised in the free-hold villages of Idakkode, Illamba, Mudakkal, Alamkodu, Avanavancherry, Attingal and Kilattingal in the Chirayinkil Taluk, the revenue from which was wholly assigned in favour of the Sreepadam Palace; and
    • (ii) other lands not being pandaravaka lands situate in the State of Kerala and owned by the Sreepadam Palace (See: The Sreepadam Lands Enfranchisement Act, 1969).

5. Sree Pandaravaga

  • Sree Pandaravaka land was the land owned by the Sree Padmanabhaswamy Temple and registered in the revenue records as ‘Sree Pandaravaka’ (See: The Sree Pandaravaka Lands (Vesting And Enfranchisement) Act, 1971).
  • Sree Padmanabha Swamy Temple had originally been administered by Madathil Pillamars. The lands that belonged to the Temple were in the possession of various persons under different tenures. All such persons were liable to pay tax as ‘Rajabhogam’. The grants or Inams were made by the Kingdom for the services rendered. Such Inams included tenures like Adima, Anubhogam, Thiruvulam, Thiruvadayalam etc. The Madathil Pillamars collected the Michavaram due to Devaswom on those lands to be utilized for the poojas and other rituals to be performed in the temple.
  • When the Revenue Settlement was prepared (in 1910), all the properties that were classified under the names of the different Madoms were brought under the class ‘Sree Pandaravaka’. The lands that were in the names of the family members, received as personal Inams were described as Kudumbaporuthy lands.

6. Janmam (Thanathu)

  • It was the properties owned by Janmies.  Such lands were exempted from tax.
  • Regulation of 1071 (1896) attracted these properties.  The tax under Rajabhogam had to be paid for this land.   But Devaswom and Brahmaswom thanathu lands, though came under the head ‘Janmam’, and were exempted from tax, only so long as they remained unalienated.  When alienated it was charged under Rajabhogam assessment.  Devaswom and Brehmaswom properties could have been subjected to outright sale.

Travancore Proclamation of 1040 (1865)

In Travancore, by virtue of Proclamation of 1040 (1865), all Sirkar (or Pandaravaga) pattom-lands were converted into full proprietary-lands.

The Proclamation of 1040 reads thus:

“PROCLAMATION

By His Highness the Maha Rajah of Travancore, issued under date the 2nd June 1865, corresponding to the 21st Edavam 1040.

Whereas we earnestly desire that the possession of landed as well as other property in Our territory should be as secure as possible; and whereas We are of opinion that, with this view, Sirkar Pattom lands can be placed on a much better footing than at present so as to enhance their value; We are pleased to notify to Our ryots

  • Istly- that the Sirkar hereby and for ever surrenders, for the benefit of the people all optional power over the following classes of lands, whether wet, garden or dry, and whether included in the Ayacut accounts or registered since:
  • Ven Pattom, Vettolivoo Pattom, Maraya Pattom, Olavoo Pattom, Mara Pattom, and all such Durkast Pattom the tax of which is understood to be fixed till the next Survey and Assessment;
  • 2ndly. that the ryots holding these lands may regard them fully as private, heri-table, saleable, and otherwise transferable, property;
  • 3rdly. accordingly, the sales, mortgages, & e., of these lands will hence-forward be valid; may be effected on stamped cadjans and will be duly registered; the lands may be sold for arrears of tax, in execution of decrees of Courts and such other legitimate purposes, and may also be accepted as security by the Sirkar as well as by private individuals;
  • 4thly. that the holders of the lands in question may rest assured that they may enjoy them undisturbed so long as the appointed assessment is paid;
  • 5thly. that the said holders are hence-forth at full liberty to lay out labour and capital on their lands of the aforesaid description to any extent they please, being sure of continued and secure possession;
  • 6thly. that the aforesaid description of lands will be resumable by the Sirkar like Jenmom and other private lands only for purely public purposes, as for instance, for making roads, canals, public buildings, & e., and when resumed for such purposes compensation will be paid by the Sirkar not for improvements only as here to fore, but equal, to the full market value of such lands;
  • 7thly. that the foregoing concessions are not however to be understood to affect in any way the rights of the Sirkar to regulate the land tax, to resume escheats, to confiscate the property of criminals, and generally such rights as have heretofore been exercised upon all property in general;
  • 8thly. that it is to be understood that when Pattom land being a portion of a holding, is transferred to a pauper, with the view of defrauding the Sirkar of the tax due to it, the Sirkar will have the right of apportioning the tax so as to prevent loss of revenue; and,
  • 9thly. (Repealed by Proclamation dated the 5th Karkadakam 1059). (Quoted in: Padmanabharu Govindaru  v. The State of Kerala, AIR 1963 Ker 86 : Rev. Fr. Victor Fernandez Vs Albert Fernandez, AIR 1971 Ker 168; 1971 Ker LT 1.)

Devaswom Proclamation, 1922 & 1948 and Formation of Dev. Board

The History of Governmental Administration of Devaswoms mark four phases. They are:

  • (i) Administration as the Land Revenue Department – started in 987 ME (1811-1812 AD) under the edicts of Col. Munro.
  • (ii) Administration as the Devaswom Department – from 1922 Devaswom Proclamation.
  • (iii) Direct Administration by Maharaja by the 1948 Proclamation assuming control of Devaswoms and Devaswom Department.
  • (iv) Administration under Devaswom Board – from 1950 in accordance with the enactment, Travancore-Cochin Hindu Religious Institutions Act, 1950.

Administration ‘AS’ the Governemnt Departments

By virtue of ‘organising’ the Devaswoms “as” the Land Revenue Department (from 987 ME) and “as” the Devaswom Department (by Proclamation, 1922), Devaswoms mentioned in the schedule thereof were treated as the ‘property of the State’.

The history as to the formulation of the Devaswom Proclamation, 1922, is given in  M. Muraleedharan Nair v. State of Kerala, AIR1991 Ker 25. It was laid down:

  • The Hindu temples in the State of Travancore were mostly under private management called Ooralars or Karakars.
  • As those bodies were found mismanaging the institutions, Col. Munro decided in 987 ME (1811-1812 AD) that the State should assume control over them.
  • With a view to secure better management of the Devaswoms, the Government appointed a committee to report upon the assumptions of those Devaswoms, the feasibility of separating their administration from the Land Revenue Department and cost if a separate department be deemed desirable.
  • The Commitlee, recommended that the administration of the Devaswom should be separated from the Land Revenue Department and entrusted to a distinct agency.
  • The Government of Travancore after taking necessary legal opinion came to the conclusion that creation of a separate department exclusively to the administration of Devaswoms was necessary.
  • Considering that it is the solemn right and duty of the Government to maintain efficiently and in good condition the Hindu Religious Institutions the State the Travancore Government issued the Devaswom Proclamation on 12th April, 1922 corresponding to 30th Meenom, 1097.
  • Section 7 of the Proclamation is as under:
    • “7.(1) Our Government may for the better and more efficient management and more effective control of the Devaswoms mentioned in the schedule organised a Devaswom Department of the State consisting of such number of officers and other servants as they think fit.
    • 2. The expenditure in connection with the said Department shall, notwithstanding anything contained in Sections 3 and 4, be not out of the general revenue of the State.”
  • The Devaswom Department has become a part of the Government Department.

Administration ‘UNDER’ the Travancore Devaswom Board

The history shows that a “material change” was brought forth by the formulation of the Travancore Devaswom Board. It is laid down in  M. Muraleedharan Nair v. State of Kerala, AIR 1991 Ker 25, as under:

  • The Maharaja did not want to leave the administration of the Devaswoms to the State Government in the new set up. Therefore on 10-8-1123 (23-3-1948), yet another proclamation was issued by which the Maharaja assumed control of Devaswoms and Devaswom Department of the Government.
  • A material change also made in respect of funds from which expenditure. It was also provided that expenditure to be made not from general revenue but only from Devuswom fund.
  • Thereafter when Travancore-Cochin States were integrated it was provided by Section 8(c) of the Covenant that the administration of the Devaswoms, Hindu Religious Institutions and Endowments and their properties and funds would vest with effect from 1-8-1949 in a Board known as Travancore Devaswom Board.
  • The Hindu Religious Institutions Ordinance 10 of 1124 was promulgated which came into force on 1-8-1949. Before expiry of the period of Ordinance, Act 15 of 1950, namely the Travancore-Cochin Hindu Religious Institutions Act, 1950 was enacted.
  • Section 3 of the Act provided (as regards the formation of the Travancore Devaswom Board) as under:
    • “The administration of Incorporated and unincorporated Devaswoms and of Hindu Religious Endowments and all their properties and funds as well as the fund constituted under the Devaswom Proclamation, 1097 M. E. and the Surplus Fund Constituted under the Devaswom (Amendment) Proclamation, 1122 M. E. which were under the management of the Ruler of Travancore prior to the first day of July 1949, except the Sree Padrnanabhaswamy Temple, Sree Pandaravaga properties and all other properties and funds of the said temple, and the management of all institutions which were under the Devaswom Department shall vest in the Travancore Devaswom Board.”
  • The power of nomination given to the Ruler of Travancore was taken away and was given to the Council of Ministers by Travancore-Cochin Hindu Religious Institutions (Amendment) Act 70 of 1974. Thereafter, of the three Hindu members of the Board, two will have to be nominated by the Hindus among the Council of Minister. The power given to Rajpramukh was subsequently vested in the Governor.

Land-Classification in Cochin

Pandaravaka, or Puravaka

All lands were classed under Pandaravaka or Puravaka.

  • Pandaravaka lands – The lands owned by the State (or State having the jenmom or proprietary right).
  • Puravaka land – The land over which the proprietary right (jenmam right) was vested with private individuals or public institutions (or land in which janmam right did not vest in the Sarkar.

Land-Tenuers in Cochin

Verumpattom

The chief land systems of tenancy under which tenants held lands owned by others were called Verumpattom. This was simple leasehold. By a series of legislative enactments, culminated in the Cochin Tenancy Act (1118 ME – 1943) – hailed as the ‘great charter’ for the tenants, tenants gained occupancy rights in the lands held by them.

Kanam

Verumpattom became a kanam when the landlord acknowledged liability to pay a lump sum to the tenant on the redemption of his lease.

Kanam-Kuzhikanam

Section 2(23) in Kerala Land Reforms Act, 1963, reads as under:

  • (23) “Kanam-Kuzhikanam” means a transfer by a landlord to another person of garden lands or of other lands or of both –
    • (i) with all or any of the trees, if any, standing there on at the time of the transfer; or
    • (ii) without such trees, for the purpose of planting trees or pepper vines or both thereon and for the enjoyment of the trees transferred, if any, the incidents of which transfer include-
    • (a) a right in the transferee to hold the said lands liable for the consideration paid by him or due to him which consideration is called ‘Kanartham’; and
    • (b) the liability of the transferor to pay to the transferee interest on the kanartham unless otherwise agreed to by the parties.”

Pankuvaramdars

Under this tenancy tenants raised crops on agricultural lands in partnership with the owners, the terms of partnership varyied from place to place.

Kudikidappukar

Under this arrangement landlords allowed tenants to occupy a portion of their land generally for putting up a house.

Otti (Mortgages)

Tenancy under this head took different forms in different regions.

Cochin Settlement Proclamation, 1080 (1905)

Cochin Settlement Proclamation, was made by his Highness Sir Rama Varma Raja of Cochin on March 10, 1905. It declared that the verumpattom holders of lands would, acquire full rights to the soil of the lands they hold. The Proclamation aimed to make better the status of the men toiled in the agricultural fields and to improve the economic insecurity of the tenants, and thereby increase the revenue of the King also.

Purushothaman Nambudiri v. State of Kerala, AIR 1962 SC 694, describes the 1905 declaration as under:

  • “This proclamation consists of twenty- eight clauses which deal broadly with all the aspects of land tenure prevailing in the State of Cochin. The preamble to the proclamation recites that the Raja had already ordered that a complete survey embracing demarcation and mapping and the preparation of an accurate record of titles in respect of all descriptions of properties within his entire State shall be carried out, and it adds that directions had been issued that a revenue settlement or revision of the State demand shall be conducted in accordance with the principles laid down by the proclamation. Clause 6 enumerates the tenures of lands prevailing in the State. Under this clause there are two major tenures –
    • (1) Pandaravaka and
    • (2) Puravaka.
  • The former are held on one or the other of six varieties of tenures; of these we are concerned with the verumpattom sub-tenure. This clause provides that the Pandaravaka verumpattom tenure shall be deemed as the normal tenure for settling the full State demand and that the other tenures shall be treated as favourable tenures and settled on the lines indicated in cls. 14 to 17. Clause 7 says that the present rate of assessment on Pandaravaka verumpattom nilas varies from one eighth para to twelve paras of paddy for every para of land; and it adds that such a vast disparity of rates is indicative of unequal incidence under the existing revenue system. That is why the clause proceeds to lay down that the State demand should bear a fixed proportion to the produce a land is capable of yielding and so it prescribes that under the Pandaravaka verumpattom tenure the holder should pay half of the net produce to the State. The clause then proceeds to provide for the method in which this half of the net produce should be determined. Clauses 11 and 12 deal with the assessment on tree.
  • Clause 13 is important. It says:
    • “at present holders of Pandaravaka verumpattom lands do not possess any property in the soil. As we are convinced that proprietorship in the soil will induce the cultivator to improve his land and thereby add to the prosperity of the land, we hereby declare that the verumpattom holders of lands shall, after the new settlement has been introduced, acquire full rights to the soil of the lands they hold and that their rights shall remain undisturbed so long as they regularly pay the State revenue provided that the rights to metals, minerals possessed by the State in all lands under whatever tenure they are held are reserved to the State”.
  • Under cl. 18 it is provided, inter alia, that in the case of Pandaravaka lands held on the verumpattom tenure the settlement shall be made with the present holder of the land and in regard to Puravaka land with the Janmam. Clause 22 prescribes the procedure and the time for the introduction of settlement. It requires that before the introduction of the new rates of assessment a rough patta shall be issued to each of the landholders showing the relevant detail of his holdings and the assessment to be paid by him hereafter. The object of preparing such a patta is to give an opportunity to the landholders to bring to the notice of the authorities their objections if any. The objections are then required to be heard before the final entries are made. Clause 26 declares that the new settlement shall be current for a term of thirty years. This has been done with a view to secure the utmost freedom of action to the landholders in improving their properties and turning them to the best advantage according to their means and inclination. Clause 27 deals with escheats; and cl. 28 makes general provisions as to the formation of a new land record including reassessment of land and the registration of titles “a work calculated to promote the well- being of a State”.

Malabar ‘Jenmi’, ‘Jenmom’ and ‘Ryotwari System’

Malabar is the northern part of Kerala. It formed part of the erstwhile Madras province in the British India. By the medieval period lands in South India were owned by Jenmis and the tenants cultivated the land giving rent or other remuneration to the landlords. ‘Jenmi’ held ‘jenmom lands’ as his absolute property.

Innumerable varieties of land tenures were prevalent in various parts of South India.  Two types of tenures were important in Madras Presidency: landlord-tenures and the ryotwari-tenures.   (‘The Land Systems of British India’ by Bedan Henry Powell first published in 1892; ‘Land Tenures in the Madras Presidency’ by S. Sundararaja Iyengar, published in 1916. See: Thressiamma Jacob v.  Geologist, Dptt. of Mining, 2013 (9) SCC 725).

In Balmadies Plantations Ltd. v. The State of Tamil Nadu, AIR 1972 SC 2240, the Constitution Bench of our Supreme Court held as under:

  • “Originally the janmis in Malabar were absolute proprietors of the land and did not pay land revenue. After Malabar was annexed by the British in the beginning of the 19th century, the janmis conceded the liability to pay land revenue” (Quoted in Thressiamma Jacob v.  Geologist, Dptt. of Mining, 2013-9 SCC 725.)

Land owned by the Government was given to the cultivators under the ryotwari system, under a patta. Sir Thomas Munro, Madras Governor, introduced ryotwari system throughout the Madras Presidency in 1820.  British Government collected taxes directly from the peasants. The rate of tax was 50% in dry-lands and 60% in irrigated land.

What was ‘Patta’ In Malabar?

  • In Malabar area ‘Patta’ was originally a word connected to land-lease. “Patta” issued when Lease by Government.

Ryotwari System in Malabar – Lease by Government, under Pattas

  • Sir Thomas Munro, Madras Governor, introduced ryotwari system throughout the Madras Presidency in 1820.  
  • Under the ryotwari system, land was given on lease by the government to the ryot under a patta.
  • A ryotwari pattadar was not a proprietor of land in its full sense, but only a tenant.
  • British Government collected taxes directly from the peasants. The rate of tax was 50% in dry-lands and 60% in irrigated land.
  • In S. Thenappa Chettiarv. State of Tamil Nadu, AIR 1986 SC 1117, it was held, following Khajamian Wakf Estates v. State of Madras, AIR 1971 SC 161, that the expression ‘estate’ in Article 31A included ‘ryotwari’ land also by virtue of the Seventeenth Amendment of the Constitution on June 20, 1964 with retrospective effect.

Ryotwari Settlement, 1920 – Assessment for Revenue

As stated above, Sir Thomas Munro, Madras Governor, introduced ryotwari system throughout the Madras Presidency in 1820.  The basic idea of ryotwari settlement (revenue-settlement is fixing tax or rent, after survey in most cases) was that every bit of land was assessed to a certain revenue and assigned a survey number for a period of years, which was usually thirty and each occupant of such land held it subject to his paying the land-revenue fixed on that land. But it was open to the occupant to relinquish his land or to take new land which had been relinquished by some other occupant or become otherwise available on payment of assessment (Land Systems of British India by Baden-Powell.  See: Thressiamma Jacob v.  Geologist, Dptt. of Mining, 2013-9  SCC 725).

Land-Settlements in Malabar

Madras Land Registration Regulation, 1802

The Madras Land Registration Regulation, 1802 (Madras Regulation XXVI of 1802), is the first Settlement. It was promulgated with the object as shown in its preamble –

  • “Whereas it is expedient that public means should be established for the purpose of ascertaining the public revenue on landed estates paying revenue to the Government as well as for prescribing rules for the transfer,of all lands; wherefore the following rules have been passed for that purpose.”

Malabar Land Registration Act, 1895

The Malabar Land Registration Act, 1895 (Act 3 of 1896), is promulgated with the object as shown in its preamble –

  • “Whereas Regulation XXVI of 1802 provides that landed property paying revenue to Government shall be registered by the Collector; and whereas such landed property *[in certain areas in the Nilgiri district] has in many cases not been registered in the names of the proprietors thereof; and whereas it is desirable for the security of the public revenue to provide a summary means whereby the Collector may ascertain such proprietors …..”

*[The words “and Certain neighbouring areas in the State of Madras” were substituted for the words “and the Wynaad” by section 45 of the Malabar Tenancy (Amendment) Act, 1951 (Madras Act XXXIII of 1951) and the words “in certain areas in the Nilgiri district ” were substituted for the words ” in Malabar and certain neighbouring areas in the State of Madras” by the Madras Adaptation of Laws Order, 1957. The above Act came into force on the 15th March 1952.]

Prior to independence, the last survey settlement was made in Malabar during 1926-1934. It was done as per the Resettlement Manual of 1930.

Chitta and Adangal in Madras

Chitta: Chitta is a revenue document maintained in Taluk office. It contains extent of land, name of owner and the type of land (wet/dry, irrigated/rainfed, etc.).

Adangal: Adangal is also a revenue record that contains details about the land, such as the ownership, extent, classification of land, and details of cultivators. It is taken as a document for showing the ownership and possession of land. (See: D.  Rajamanickam v. M.  Pasupathiammal, 2019-2 Mad LJ 208; N. Chandrasekaran v. Arulmighu Thiruvatteeswarar Thirukkoil, 2020-1 LW 631; 2020-5 Mad LJ 227).

History of Settlement and Adangal Register in Malabar

In Sukapuram Sabhayogam v. State of Kerala, AIR 1963 Ker 101, it was pointed out with reference to the Madras District Gazetteer, Malabar as regards the history of settlement (1900 -1904) and re settlement (1931-1934) and as regards the preparation of Adangal Registers after the settlement as under:

  • “67. In the Madras District Gazetteer, Malabar, by Inis, 1951 Edition, at page 344, it is stated that the settlement was introduced into the eight plain Taluks of Malabar between 1900 and 1904 and the Revenue system of the District has been brought into line with that of the rest of the Presidency, due allowance being made for special local conditions.
  • 68. Dealing with the re-settlement, it is stated in the same Gazetteer, at page 848, that it took place between 1931 and 1934, and that the re-settlement was done because the term of 30 years for which the then existing rates of land assessment were sanctioned had expired between 1929-30 and 1932-33- A list of the taluks giving particulars as to when the last settlement expired and the new settlement came into operation, is also given at the same page.
  • 69. At page 349 of the same book, among the special features of the re-settlement, it is mentioned that the terms “janmabhogam” or “private janmam” were replaced by new holdings and old holdings respectively. That is, in the Adangal Registers etc., maintained after the settlement was introduced for the first time in 1900 and 1904, the lands of all the jenmis appear to have been shown as private janmam but in the re-settlement the register shows them as old holdings.”
  • Note: The expression ‘estate’ in Article 31A (relating to ‘acquisition’ of land etc.) included ‘ryotwari’ land also by virtue of the Seventeenth Amendment of the Constitution on June 20, 1964 with retrospective effect.

Supreme Court: Ryotwari Tax Collection Begun in 1792

In Balmadies Plantations Ltd. v. The State of T.N., AIR 1972 SC 2240 examined the status of land holders under ryotwari settlement. It was held as under:

  • “Ryotwari or kulwar system was first introduced into the British possessions by Col. Read in 1792. When the Baramahal and Saleem were ceded to the British by Tippu, Lord Cornwall is specially deputed Col. Read for their settlement. …. The ryot was not regarded as the proprietor of the soil but only as a cultivating tenant from whom was to be exacted by government all that the he could afford. ….. This distinguishing feature of this system is that the state is brought into direct contact with the occupant of land and collects its revenue through its own servants without the intervention of an intermediate agent such as the Zemindar. All the income derived from extended cultivation goes to the state.”

Private Janmam in Malabar Area – Ended By 1934

In Sukapuram Sabhayogam v. State of Kerala, AIR 1963 Ker 101, it is also pointed out that notwithstanding the introduction of the Ryotwari settlement in Malabar area between 1900 and 1904, certain lands were shown as ‘private janmam’ as distinguished from ‘Government Janmam’. And, added as under:

  • “The practice of treating the properties of persons like the petitioner as private janmam has been completely given the go-by, at any rate, after the resettlement during 1931-1934.”
  • Note: The expression ‘estate’ in Article 31A (relating to ‘acquisition’ of land etc.) included ‘ryotwari’ land also by virtue of the Seventeenth Amendment of the Constitution on June 20, 1964 with retrospective effect.

Lands held under Ryotwari tenure after Ryotwari Settlement (1934)

In Kannan Devan Hills Produce v. State of Kerala, AIR 1972 SC 2301; 1972-2 SCC 218, it was pointed out – “(We are not concerned here with) lands which were held by the Full Bench of the Kerala High Court in Sukapuram Sabhayogam v. State of Kerala, AIR 1963 Kerala 101 to be held under Ryotwari tenure after the introduction of the Ryotwari Settlement in the Malabar area of Kerala State”.

Part III

Land Reform Measures that Shaped Kerala

In ‘Historical Introduction to the Kerala Land Reforms Act and the Working of the Land Tribunals’, PN Prabhakaran Pillai, Cochin University Law Review 1, No. 1 (1974), observes as under:

  • “Most of the Land Reforms Laws enacted by the States have not been effectively implemented. Kerala Land Reforms Act, 1963, as amended upto date is however an exception. The major amendment made in 1969 is considered to be a bold step in the land reforms legislation. No other state in India has introduced a socio-economic legislation of this type to safeguard the interest of the agricultural classes of the society.”

Travancore

  • Travancore Royal Proclamation, 1040 (1865 AD)
  • Travancore (Royal) Revenue Settlement Proclamation, 1061 (1886)
  • Travancore Estate Rent Recovery Regulations, 1068 (1893)
  • Travancore Jenmi and Kudiyan Act, 1071 (1896)
  • Travancore Royal Proclamation, 1097 (1922)
  • Travancore Edavagai Regulations, 1934
  • Travancore Jenmi and Kudiyan (Amendment) Act, 1935.
  • Travancore Prevention of Eviction Act, 1949
  • Travancore Kandukrishi Proclamation, 1949
  • Travancore Holding (Stay of Evictions Proceedings) Act, 1950 (Travancore Act VIII of 1950), Act II of 1951 Act VII of 1952, Act IV of 1953 etc.
  • Travancore Edavagai Rights Acquisition Act, 1955.
  • Travancore Cochin Prevention of Eviction Act, 1955.
  • Travancore Kanom Tenancy Act, 1955
  • Travancore-Cochin Compensation for Tenants’ Improvements Act, 1956,

Malabar

  • Malabar Compensation for Tenants’ Improvements Act, 1887
  • Malabar Tenancy Act, 1929.
  • Tamil Nadu Inam Estates (Abolition and Conversion into Ryotwari) Act, Act 26 of 1963;
  • Tamil Nadu Minor Inams (Abolition and Conversion into Ryotwsri) Act, Act 30 of 1963;
  • Tamil Nadu Leaseholds (Abolition and Conversion into Ryotwari) Act, Act 27 of 1963.

Cochin

  • Cochin Settlement Proclamation, 1080 (1905)
  • Cochin Devaswom Proclamation, 1909
  • Cochin Tenancy Act, 1914
  • Cochin Kanom Tenancy Act, 1113 (1938)
  • Cochin Devaswom Verumpattom Settlement Proclamation (Cochin Verumpattomdars Act), 1118 (1943).

Kerala

  • Kerala Agrarian Relations Act, 1961.
  • Kerala Land Reforms Act, 1963.
  • Kanam Tenancy Abolition Act, 1976 (applied only to Cochin area)

Kerala Agrarian Relations Act, 1961

In Purushothaman Nambudiri v. State of Kerala, AIR 1962 SC 694, the legislatice History of Kerala Agrarian Relations Bill is given. It reads as under:

  • “The Kerala Agrarian Relations Bill which has ultimately become the Act was published in the Government Gazette of Kerala on December 18, 1957 and was introduced in the Kerala Legislative Assembly on December 21, 1957 by the Communist Government which was then in power.
  • The bill was discussed in the Assembly and was ultimately passed by it on June 10, 1959. It was then reserved by the Governor of the state for the assent of the President under Art. 200 of the Constitution, Meanwhile, on July 31, 1959 the President issued a proclamation under Art. 356 and the Assembly was dissolved. In February1960 mid-term general elections took place in Kerala and as a result a coalition Government came into power.
  • On July 27, 1960 the President for whose assent the bill was pending sent it back with his message requesting the Legislative Assembly to reconsider the bill in the light of the specific amendments suggested by him. On August 2, 1960 the Governor returned the bill remitted by the President with his message and the amendments suggested by him to the new Assembly for consideration. On September 26, 1960 the amendments suggested by the President were taken up for consideration by the Assembly and ultimately on October 15, 1960 the bill as amended in the light of the President s recommendations was passed by the Assembly. It then received the assent of the President on January 21, 1961, and after it thus became law.”

The Supreme Court struck down the 1961 Act as regards its application to the ryotwari lands of Hosdurg and Kasargod Taluks, as unconstitutional, on the ground that it was violative of the Art. 14 of the Constitution, in Kunjikoman V. State of Kerala, AIR 1962 SC 723 .

The High Court of Kerala, declared its application, null and void, as regards the ryotwari lands of Malabar area and the lands held under Kandukrishi, Sreepadomvaka, Thiruppuvaram, Pandaravaka, Viruthi etc., in Govindaru Nampoothiripad v.  State of Kerala,  1962 KLT 913, AIR 1963 Ker 86.

In Purushothaman Nambudiri v. State of Kerala, AIR 1962 SC 694, challenge was made to the Kerala Agrarian Relations Act, 1961 (as regards the Pandaravaka Lands of Cochin),on the basis of Arts. 14, 19 and 31 of the Constitution. It was not not accepted.

The Kerala Land Reforms Act, 1963

The Kerala Land Reforms Act, 1963 made Kerala change tremendously. Modern Kerala is shaped by this Act (though some, including a few who were benefitted, may hesitate).

Landmark Enactments in Land Tenure Reforms that Culminated in KLR Act, 1963

Royal Pattom Proclamation of 1040 (1865 AD) – Fist Gigantic Step

During the second half of the 19th century several Royal Proclamations were promulgated with a view to confer rights in the land to the tenants who were the real cultivators. Majority of the people were engaged in agriculture; but the lands belonged to Jenmies (Sircar, Brahmins or Devaswoms). The cultivators held the land under lease arrangement known as Pattom, Otti, Inam and Viruthi etc. One of the important Regulations came in the line of agrarian reforms was the Royal Proclamation of 1040 ME (1865 AD). It pertained to Pattom (lease) tenements created (by Sircar) on Sirkar lands known as Pandaravaka lands. It is exalted as the Magna Carta of peasants of Travancore it being led to conferring land to tillers, step by step.

Proclamation of 1040 (1865) No Proprietary Rights; But, Permanency to Cultivators

Till 1040 ME (1865 AD), the agriculturists, who held the Pandaravaka lands under Pattom arrangement, were liable to be treated as mere tenants-at-will; the land being resumable resumable (by the Government) at any time, as they were in the nature of temporary leases just like tenements created by private jenmis.

The Pattom Proclamation of 1040 (1865) converted the pattom arrangement on pandaravaka lands into permanent leases and conferred on the holders thereof permanent rights of occupancy, heritable and alienable. Though the Proclamation of 1040 ME did not expressly confer full proprietary rights on tenants, it gave the tenants permanency in the Pandaravaka soil; and it recorded the fist gigantic step towards the land reforms in Travancore.

Royal Proclamation of 1061 (1886) Brings in Further Radical Changes

Paragraph 9 of the Revenue Settlement Proclamation of 1061 says, with reference to Royal Proclamation of the 21st Edavam 1040, as regards Pandarapattam lands, as under:

  • ““these lands were originally the absolute property of Government, and the tenants were mere tenants-at-will; but, by the Royal Proclamation of the 21st Edavam 1040, Government generously waived all right to these lands, and declared them to be the private, hereitable, saleable property of the holders.”.”

Section 22 of the Revenue Settlement Proclamation of 1061 (1886) made radical changes in land tenure.

Those changes were:

  • (1)   no debt shall be recognised as due to the holder;
  • (2) no interest shall be deducted from the Pattom on such debt;  
  • (3) no reduction of debt or a corresponding enhancement of the Sirkar demand shall be made when such properties were transferred by sale.
  • The properties held on the tenures in question shall be recognised as so many favourably assessed lands or Inams and confirmed to the holders as such.

Clause 7 of Section 24 of the Proclamation provided as under:

  • “There shall be no further interference on the part of the Government with these free holds, except such as might be necessary for the punctual realization of the quit rent payable”. (Quoted in: Padmanabharu Govindaru  v. The State of Kerala, AIR 1963 Ker 86.)

See notes below: ‘Pandarappattoms’ before 1061 (1886) were Recorded as “Thettoms”

Jenmi & Kudiyan Act (1896) and Amendments – Made Kudiyan, Full Owner

‘Jenmam (Janmam) land’ is defined in the Jenmi and Kudiyan Regulation, V of 1071 (1896), as land (other than Pandaravaka, Sripandaravaka, Kandukrishi or Sircar Devaswom land, recognised as such in the Sircar accounts) which is either entirely exempt from Government tax or if assessed to public revenue, is subject to Rajabhogam only, and the occupancy right in which is created for a  money consideration (Kanom) and is also subject to the payment of Michavaram or customary dues and the payment of the renewal fees.

This definition is intended for the purposes of the Regulation, which regulates the relations between Janmis and their Kanapattom tenants. A Janmi has not only Kanapattom tenants but has other tenants as well holding on Adima Anubhogam, Thiruvulam and similar other tenures and the Regulation is not concerned with the latter class of tenants in whose case the ordinary law of landlord and tenant is applicable. Revenue law, on the other hand, makes no distinction between a Kanapattom tenant and a non Kanapattom tenant if he holds under a Janmi recognised in the revenue accounts.

Before Travancore Jenmi and Kudiyan Act, V of 1071 (1896), lands were granted as Inams by the Sovereign to Devaswoms and Brahmin jenmies. (Sreekumaran Kesavan Namboori v. Gopalan Madhavan, 1956 KLT 256).

The Jenmi & Kudiyan Regulation of 1071 ME (1896) was passed to stop the injustices perpetrated on the Kudiyans (bond-servants). It was amended by the Amendment Regulation of 1108 ME. The report of the Committee which led to the Amendment Regulation of 1108 ME reads as under:

  • “6. The outstanding feature of the amendment is that it lays the ghost of the Jenmis’ ownership for ever. The Jenmi has been expropriated and reduced to the position of a mere rentier. Refined considerations in the interests of the reciprocal rights and obligations have all been swept away. The solution of the problem looks like the cutting of the Gordian knot and the process is rather rough and coarse by the side of the Regulation of 1071. The measure is eminently democratic. To some extent it is socialistic also. For, one of the aims of some schools of social reformers, is to make the labourer free by breaking down the relationship of master and servant and similar situations involving superiority and inferiority by means of legislative interference. Whatever it be, to all appearance the jenmi has received the knock-out-blow. Yet it may be asked whether he has not good reason to come back smiling. For what he is entitled to by way of michavaram, renewal fees and customary dues has been consolidated and spread out with the advantage that he is assured of the payment without any worry. The burden on the Kudiyan is clearly fixed and the door has been closed on the chance of his escape. It remains to be seen who is the better for the present amendment of the Regulation”. (Quoted in: Harrisons Malayalam Limited v. State of Kerala, 2018-2 KHC 719; 2018-2 KLT 369)

The changes introduced by the Amended Regulation reads as under:

  • “i. Jenmi is not the owner of the land hereafter, his right being confined to the receipt of Jenmikaram as fixed by the law;
  • ii. the Kudiyan is the full owner of the land subject only to the payment of the Jenmikaram to the Jenmi;
  • iii. Jenmikaram is to be regulated and controlled by the Settlement Pattamicham and not by the Kanappattam contract except till the next general Land Revenue Settlement and, that even, only subject to certain statutory limitations;
  • iv. no renewals are hereafter obligatory;
  • v. Jenmis’ dues may be fractioned out and paid annually and in money as prescribed by the Statute;
  • vi. the rate of interest on arrears of Jenmikaram has been reduced to nine per cent whether payable in kind or in money when collected by the Jenmy direct, or under the provisions of chapter III or otherwise through Court, and to six per cent when collected by the Government under the provisions of chapter IV;
  • vii. The period of limitation for recovery of arrears of Jenmikaram has been reduced from the former period of twelve years to a period of six years;
  • viii. Government have undertaken the collection of Jenmikaram and payment thereof over to the Jenmi;
  • ix. in the case of Government realising the Jenmikaram under the provisions of chapter IV only the land on which the Jenmikaram is a charge shall be sold for arrears of jenmikaram, though this restriction may not apply as regards the movables of the defaulter;
  • x. Section 45 enacts an equitable method of the distribution between Jenmi and Kudiyan of compensation money granted by the Sircar when the Government compulsorily acquire or purchase jenmom lands”.

Cochin Settlement Proclamation of 1080 (1905)

As shown above, the Sirkar or Pandaravaka tenure holders of the Kingdom of Cochin were conferred with fixity of tenure by the Settlement Proclamation of 1080 (1905).

The Settlement Proclamation of 1905 covered all lands in the State, including lands held under concessional tenures or as tax-free. The Rules made under the Act contained the procedure for the issue of title deeds in respect of lands held under such grants. As stated above, Clause 13 of the Settlement Proclamation provided that the holders of Pandaravaka Verumpattom lands would acquire ‘full rights to the soil of the lands‘ they held. Settlement Proclamation of Cochin of 1080 (1905) Clause 13 provided as under:

  • “At present holders of Pandaravaka Verumpattom lands do not possess any property in the soil. As we are convinced that proprietorship in soil will induce a cultivator to improve his land and thereby add to agricultural prosperity of the country, we hereby declare that our Verumpattom holders of lands shall, after the new settlement has been introduced, acquire full rights to the soil of the lands they hold and that their rights shall remain undisturbed so long as they regularly pay the State revenue, provided that the rights to metals and minerals, possessed by the State in all lands under whatever tenures they are held, are reserved to the State”.

The Settlement Proclamation of 1905 was expressly repealed by the Land Tax Act of 1955 of the united State of Travancore-Cochin; but this Act, as a whole, was struck down by the Supreme Court in AIR 1961 SC 552. In Kesavan Vadhyan Namboodri v. State of Kerala, AIR 1968 Ker 279, it was pointed out that this Proclamation of 1080 (1905) stood repealed by implication by the Land Tax Act of 1961.

Section 4 of the Cochin Verumpattomdars Act, 1118, reads as under:

  • “Notwithstanding any law, custom or contract to the contrary, every verumpattomdar shall have fixity of tenure in respect of his holding and shall not be evicted therefrom except as provided in Section 8 of this act.”

Section 4 concerned with the fixity of tenure, that is, fixity of the period of holding, possession or enjoyment of the land. The effect of such a mere conferment of fixity of tenure was not to continue the lease beyond the period specified therein, but to give to the person who continues to remain in possession of the land after the lease has come to an end the status of a statutory tenant. (Ittiravi Namboodiri Vs. Krishnankutty Menon AIR 1964 Ker 298. Dr. K. A. Dhairyawan V. J. R. Thakur, AIR 1958 SC 789, referred to.)

Travancore Jenmi and Kudiyan (Amendment) Act, 1935

‘Proceedings of the Travancore Sri Chitra State Council’ recorded the speech of Kayalam Paramesvaran Pillai (Additional Head Sircar Vakil) while moving the Travancore Jenmi and Kudiyan Regulation (Amendment) Bill, on 28th May 1935, as under:

  • “Sir, I beg to move that the Travancore Jenmi Kudiyan Regulation (Amendment) Bill, as passed by the Sri Mulam Assembly, be taken into consideration. I am sure that honourable members have carefully gone through the Bill and that it is not necessary for me to explain the principles underlying the Bill at great length. It will be noticed that the main point for which this Bill is proposed is in regard to jenmikaram in respect of cherikal lands held on Kanapattom. Honourable members know what a kanapattom transaction is. It is a demise by a jenmi to a person called kudiyan in respect of a Jenmam land on receipt by the jenmi of an amount as loan, called Kanam. The kudiyan has to pay a rent or pattom to the jenmi. The jenmi has to pay interest in respect of the kanam money advanced. The net result is that the kudiyan pays to the jenmi the rent or pattom minus the interest and this residual rent is called michavaram. Besides this michavaram the kudiyan has also to pay certain customary dues and periodical fees. Under the Jenmi and Kudiyan Regulation as amended, all these dues have been consolidated and their yearly value has been taken and fixed as the amount payable every year in lieu of all dues to the jenmi. This is the jenmivaram and this law further lays down what shall be the rent payable and this is called the jenmikaram. The jenmikaram may be “said to be the statutory rent and the jenmivaram the contract rent, and it has been laid down that in the case of Jenmom lands generally jenmivaram shall be the jenmikaram. But in the case of cherikal lands a differential provision is made and it has been laid down that in respect of cherikal lands that jenmikaram shall be the settlement pattamicham minus the interest on the kanam amount. Perhaps I may have to explain what settlement pattamicham is. Honourable members know that settlement pattom is the pattern fixed by Government in respect of Sirkar lands in the settlement of tax. The Settlement Pattamicham means the settlement pattom fixed at the settlement minus the tax actually payable in respect of the land. In respect of cherikal lands what has been fixed is that the kudiyan shall pay to the jenmi the settlement pattamicham minus the interest on the kanam amount. It has been assumed that the settlement pattamicham is the utmost fair rent that may be paid by the kudiyan to the jenmi. But it has been noticed in actual fact that the interest on the kanam is more than the settlement pattamicham, with the result that in many cases the jenmikaram is nil or a minus quantity. This was not the intention of the Legislature. Therefore provision is now proposed, in this Bill, that in respect of cherikal lands either the jenmivaram or settlement pattamicham minus the interest on kanam amount shall be the jenmikaram whichever is greater. I am sure that this will be admitted to be a reasonable arrangement. This is the main principle of the Bill.”

‘Cherikkal’ Lands

In Godavarma Valia Raja v. Bhoothi Swamiyar, AIR 1953 TC 408;  ILR 1954 TC 109; 1953  KLT 267, reference was made to the report of the Settlement Division Peishkar on the Revenue Settlement of Travancore, Chapter VII which containd the following note relating to Cherikkal lands:

  • “The term ‘Cherikkal’ was ordinarily applied to dry lands known as such, in hilly tracts in certain taluks of the Quilon and Kottayam Divisions, in which paddy or other cultivation was carried on in recurring periods of years and on which under the pre-settlement revenue orders, tax was either levied or leviable by Government only during years of cultivation. The Cherikkal lands were thus under the old practice immune from the payment of assessment to the Sirkar during the years of non-cultivation, though the lands themselves once taken up by a ryot for cultivation need not be and were not in many cases, relinquished by him.
  • The cultivation of Cherikkals is of a peculiar character. The lands are cultivated generally for 3 and rarely for 4 successive years and then allowed to run into jungle. The first crop raised is invariably paddy and is popularly known as Uzhavu (….) The second crop which is known as Kalai (…) is either paddy or other cereals or sugarcane &c., and the third crop designated Kurumpuppu (….) consists of cereals other than paddy, sugarcane, ginger, yams, plantains, etc. Cultivation is then stopped for the time being. The period of fallow extended in early times to twelve years and in some cases even more. But with the extension of cultivation and the demand for land, the interval of fallow was gradually lessened so much so that in course of time only three years were allowed in some places.
  • The system of Cherikkal assessment was also peculiar. In their round of annual inspections, the village officials ascertained the Cherikkals under cultivation in each year and the crops with which they were cultivated. A second inspection was made at the time of harvest and crops gathered were then estimated for the purpose of levying the Sirkar tax. The tax which was known in the revenue accounts as ‘Melavaram’ or’Vilameladi’ according as it was imposed on Cherikkals cultivated with paddy or with other crops, was fixed at 2/10 of the produce. It was levied either in kind or in money at the current rates in the case of the paddy tax and in money at certain fixed Padivu rates in the case of other crops.”

Godavarma Valia Raja v. Bhoothi Swamiyar, AIR 1953 TC 408, proceeded as under:

  • “15. The Government order reviewing the Settlement Final Report extracted in the Travancore Land Revenue Manual, Vol. II, page 380, will also help to give an idea about the nature of melvaram realised by the State in respect of Cherikkal lands:
  • “The cherikkal lands were unregistered dry lands in hilly tracts in certain Taluks of the Quilon and Kottayam Divisions, in which paddy or other cultivation was being carried on in recurring periods of years and on which the tax was being either levied or was leviable by the Government during the years of actual cultivation. The assessment was known as malavaram or vilameladi, according as the cultivation raised was paddy or other crop. The assessment used to be fixed, after local inspection, at a certain proportion of the produce, and used to be levied either in kind or in money, at the current market rate in the case of the paddy tax, and in money at certain pathivu or fixed rate in the case of any other crop. In some places, besides the malavaram tax, an extra cess called paranellu and kutta was also levied on all Sirkar or Pandaravaka cherikkals. In the case of Pandaravaka cherikkals held on favourable terms, and also in the case of cherikkals claimed by Devaswoms and Jenmis, only one-half the malavaram or vilameladi tax was ordinarily levied. Later on, the basis of the assessment was altered from the produce of the land to the extent cultivated; and irrespective of the crop raised, the tax was fixed entirely in money.”

Tamil Nadu Inam-Estate Enactments

In Khajamian Wakf Estates v. State of Madras, AIR 1971 SC 161, the Constitution Bench considered the constitutionality of various Land Reform enactments that conferred ownership rights in tenants, including

  • (i) Tamil Nadu Inam Estates (Abolition and Conversion into Ryotwari) Act, Act 26 of 1963;
  • (ii) Tamil Nadu Minor Inams (Abolition and Conversion into Ryotwsri) Act, Act 30 of 1963; and
  • (iii) the Tamil Nadu Leaseholds (Abolition and Conversion into Ryotwari) Act, Act 27 of 1963

and held that these Acts were completely protected by Art. 31A of the Constitution. The negative arguments on Article 31 and 31A footed on estate, public purpose etc. were rejected.

‘Estate’ in Article 31A included ‘Ryotwari’ Land also

Khajamian Wakf Estates v. State of Madras, AIR 1971 SC 161, was followed in S. Thenappa Chettiar Etc v. State of Tamil Nadu, AIR 1986 SC 1117; and held that the expression ‘estate’ in Article 31A included ‘ryotwari’ land also by virtue of the Seventeenth Amendment of the Constitution on June 20, 1964 with retrospective effect.

Kannan Devan Hills (Resumption of Lands) Act, 1971 & Land History

215 sq. miles of Land Belonged to Chief of Poonjar was granted to J.D. Munro for the rent Rs. 3000 (actually nominal, for it is only 3/4 paise per acre) by The Chief of Poonjar (or H.H. the Maharaja – See: Kannan Devan Hills Produce Company Ltd. v. State of Kerala, AIR 1972 SC 2301, 1972-2 SCC 218, Para 11). It was treated as “grant of lease” for coffee cultivation (First Poonjat Concession) in 1877 without limit of time. The tract of land was known as Anchunad and Kannan Devan Hills.

Poonjar Raja was a Janmi

Our Apex Court in Kannan Devan Hills Produce Company Ltd. v. State of Kerala, AIR 1972 SC 2301, 1972-2 SCC 218, observed that the Poonjar Raja was a Janmi (landlord or proprietary interest holder) when the First Concession was granted and the whole lands have fallen within the expression ‘Janmam right‘.

On 2.8.1886, the agreement called the Second Pooniat Concession was entered into modifying the previous deed of ratification. By this time a company called the North Travancore Land Planting and Agricultural Society Ltd. had acquired the rights in the said land.

Surrender of rights to Travancore Sircar & Royal Proclamation of 1899

Poonjar Chief or Raja had subjugated himself to Travancore Sircar or Maharaja. Agreement dated 18.09.1899 was entered into between Rohini Thirunal Kerala Varma Raja (the then Chief of Poonjar Koyikkal) and the Travancore Government, under which the ownership of the land described in the First Poonjat Concession had been transferred to the Government of Travancore. (See: Kottayam District Koottu Krishi Karshakasangam v. Stateof Kerala, 2015). It was a surrender of certain rights of the Poonjar Chief in favour of Travancore Sircar. On 24.9.1899, a Royal Proclamation (of 1899) was made.

The Royal Proclamation made on 24.9.1899 read as under:

  • “Whereas we deem it expedient to clearly declare the position of this State in respect of the tract known as Anjanad and Kannan Devan Hills, we are pleased to declare as follows; (1) The tract known as Anjanad and Kannan Devan Hills is an integral portion of our territory and all rights over it belong to and vest in us.
  • (2) The inhabitants of the said tract and all others whom it may concern are hereby informed and warned that they are not to pay any taxes, rents or dues, or make any other payment to the Poonjar Chief or his representatives or to any person other than an officer of our Government authorised in this behalf, in respect of anything in, upon or connected with the said tract, with the exception, however, of a payment of rupee three thousand per annum from the successors in interests of the late Mr. J.D. Munro of London and Peermade now being paid to the said Chief in virtue of a Lease deed executed by the said Chief in favour of the said late Mr.J.D. Munro on the 11th July, 1877, and which we are pleased to permit the said Chief to continue to receive.
  • (3) The lands within the said tract will be dealt with by our Government in the same manner as lands in other parts of our  territory with such modifications as the circumstances and conditions of the said tract may require and all taxes, rents and dues hitherto paid, and that may hereafter be imposed by our Government shall, with the exception of the sum of rupees three thousand aforesaid, be paid by the, occupants of lands within the said tract whose occupation has been or may be recognized or confirmed by our Government, and of such portions of the said tract as may from time to time hereafter, with the permission of our Government, be occupied, to the officers of our Government who may be authorised in this behalf.” (Quoted in: Kannan Devan Hills Produce Company Ltd. v. State of Kerala, AIR 1972 SC 2301, 1972-2 SCC 218; Kottayam District Koottu Krishi Karshakasangam v. Stateof Kerala, 2015)

The Apex Court, in Kannan Devan Hills Produce Company Ltd. v. State of Kerala, AIR 1972 SC 2301, 1972-2 SCC 218, considered the effect of this surrender, with reference of its previous judgment in Kavalappara Kottarathil Kochuni v. State of Madras, (1960 (3) SCR 887) and observed, on the materials placed before the Court, that it was difficult to resist the conclusion that the lands in dispute (with the Poonjar Chief) fall within the expression ‘Janmam right‘; and that the effect of the Royal Proclamation of 1899 was that the Sircar became the Janmi. In Kannan Devan Hills Produce Company Ltd. v. State of Kerala, AIR 1972 SC 2301, 1972-2 SCC 218 our Apex Court observed as under:

  • “It seems to us that on the material placed before us it is difficult to resist the conclusion that the lands in dispute fall within the expression “Janmam right”. If, as stated in Travancore Land Revenue Manual Volume IV, there are no lands that do not belong to a Janmi, and the Sircar becomes a janmi by gift, escheat, confiscation or otherwise, the effect of the Royal Proclamation of 1899 must be that the Sircar became the Janmi.

Kannan Devan Hills (Resumption of Lands) Act, 1971

For revenue purposes, janmam lands were lands that were entered in the revenue accounts under the heads of Devaswom-vaka, Brahmamaswom-vaka and Madampimar-vaka, i.e., to say a land to be classed as Janmom land should have been recognised as such in the revenue accounts. The mere circumstance that a land belongs to a janmi does not bring it under janmom tenure and conversely the mere fact that janmom land is absolutely transferred to a non janmi does not any the less detract from its original character.

The Apex Court in Kannan Devan Hills Produce Company Ltd. v. State of Kerala, AIR 1972 SC 2301, 1972-2 SCC 218, observed that, the State grants like Kannan Devan Hills Concession and Ten square Miles Concession and Munro Lands, were treated under the heading ‘Pandaravaka Lands‘, i.e., lands belonging to the Sircar. (See: Kottayam District Koottu Krishi Karshakasangam v. Stateof Kerala, 2015)

Government of Kerala, successor of the former Government of Travancore, was vested with the right, title and interest of the former Government.

The Kerala Government found that a large extent of agricultural lands in Kannan Devan Hills Village had not been converted into plantations and such lands are not required for the purpose of existing plantations. Accordingly, the Government decided to resume such lands for distribution for cultivation and purposes ancillary thereto. Consequent to this, Kannan Devan Hills (Resumption of Lands) Act, 1971 was enacted. (Kottayam District Koottu Krishi Karshakasangam v. Stateof Kerala, 2015)

Constitution Bench of our Apex Court, in Kannan Devan Hills Produce Company Ltd. v. State of Kerala, AIR 1972 SC 2301, 1972-2 SCC 218, upheld the Kannan Devan Hills (Resumption of Lands) Act.

As already explained, while perusing the nature of ‘janmam right’ it was held by our Apex Court in Kavalappara Kottarathil Kochuni v. State of Madras, 1960-3 S.C.R. 887, Subba Rao, J., as under:

  • “Under the definition, any janmam right in Kerala is an “estate”. A janmam right is the freehold interest in a property situated in Kerala. Moor in his “Malabar Law and Custom” describes it as a hereditary proprietorship. A janmam interest may, therefore, be described as “proprietary interest of a landlord in lands“, and such a janmam right is described as “estate” in the Constitution.” (Quoted in Kannan Devan Hills Produce Company Ltd. v. State of Kerala, AIR 1972 SC 2301, 1972-2 SCC 218)

Kanam Tenancy Abolition Act, 1976

Under the Kanam Tenancy Act, 1955, the kanam tenants in the Cochin area were liable for the recurring and periodical payment of jenmikaram to their jenmies. Such jenmies were intermediaries between the State and the cultivators and they had the right to receive jenmikaram. The 1976 Act was enacted to abolish such intermediary right and with a view to confer on the kanam tenants full proprietary rights over their holdings.

Sec. 14 of the Act provided as under:

  • 14. Payment of amount or annuity to be full discharge of the liability to pay jenmikaram.-The payment of the amount or annuity payable under section 4 to the jenmies or other persons entitled thereto in the manner prescribed by or under this Act shall be a full discharge of the liability for payment of jenmikaram and no further claims for jenmikaram or for payment of such amount or annuity, as the case may be, shall lie.

Should a Kanam Tenant Get ‘Purchase Certificate From Land Tribunal?

The Kanam Tenancy Act, 1976 contains no express provision for the issuance of ‘Purchase Certificate’ (through the Land Tribunal) or a ‘Patta’. Though the Preamble of the Act suggests an intention to confer full proprietary rights on kanam tenants, the substantive provisions of the Act do not explicitly confer such absolute ownership over their holdings (as done in The Sreepadam Lands Enfranchisement Act, 1969 or The Sree Pandaravaka Lands (Vesting And Enfranchisement) Act, 1971) .**

  • **Note: The Sreepadam Lands Enfranchisement Act, 1969, declared ‘full proprietorship in the land’ and provided for ‘issue of Pattas or other documents’ as shown in Sec. 4 and 11.
    “4. Landholders to be registered holders under Government . — Notwithstanding anything contained in any law or contract or in any judgment, decree or order of court, with effect on and from the appointed day,—
    (a) every landholder shall, subject to the provisions of section 9, have full proprietorship in the land comprised in his holding, and such right shall be heritable and alienable;
    (b) except as provided in section 10, no landholder shall be liable to pay rent to the Sreepadam Palace.”
    “11. Issue of pattas, etc., to landholders. —(1) As soon as may be after the appointed day, the Government shall issue pattas or other documents evidencing the right of the landholder in the lands comprised in their holdings.
    (2) The pattas or other documents issued under sub-section (1) shall contain such particulars as may be prescribed.”
    Similar provisions are also in The Sree Pandaravaka Lands (Vesting And Enfranchisement) Act, 1971.

Sec. 2(c) and (f) of the Kanam Tenancy Act, 1976, are relevant. They read as under:

  • “(c) the expressions ‘cultivating tenant’, ‘the holder of a kudiyiruppu’ and ‘wakf’ shall have the meanings respectively assigned to them in the Kerala Land Reforms Act, 1963 (1 of 1964).
  • (f) ‘kanam tenant’ means a person who holds land on kanam tenure and includes- (i) the heir, assignee or legal representative of such person; or (ii) a cultivating tenant or holder of a kudiyiruppu in whom the right, title and interest of such person have vested under the provisions of the Kerala Land Reforms Act, 1963 (1 of 1964)”.

In view of the above, it is legitimate to say – a kanam tenant can obtain title (Purchase Certificate) to his holding only through the Land Tribunal – invoking the provisions thereof in Sec. 72B or 72C of the KLR Act.

This view has received judicial endorsement from the High Court of Kerala in P. V. Jinan v. Special Tahsildar [ILR 2007 (3) Ker. 641; 2007 (3) KHC 835; 2007 (3) KLJ 193; 2007 Supp (3) KLT 56, when it held –

  • “The contention is that by the omission of the proviso to Section 2(22) of the Act, by The Kanam Tenany Abolition Act, 1976 (Act 16 of 1976), a kanam tenant could again apply to the Land Tribunal for purchase of ‘kanam right’. This contention is absolutely unsustainable. It is well settled that if the claim of tenancy is rejected by the Land Tribunal on the merits, the same person cannot apply again before the Land Tribunal claiming tenancy right.”

Kerala Grants and Leases (Modification of Rights) Act, 1980

Kerala Grants and Leases (Modification of Rights) Act, 1980 was enacted with a view to modify the rights under grants and leases, for cultivation, made by the former States of Travancore and Cochin. The Act was made for the reason that such grants and leases brought about heavy loss to the Government and they resulted in huge un-earned profits to the grantees and lessees; and it was found necessary in the public interest that such undue profits to a few person were to be utilised for the common benefit of the general public. The Act required the Grantees and lessees to pay current seigniorage rates (for the trees cut by the grantees and leases) and rent to the Government. The Collector was authorised to revise assessment and rent.

Read Blog (ClicK): Grant in Law (Plantation Lands ‘Granted’ by Erstwhile Governments in South India–Legal Effect)

Part IV

Constitution of India and Kerala Land Reforms Act

Article 31A(2) of the Constitution of India reads thus:

  • “In this article-
  • (a) the expression ‘estate ‘ shall, in relation to any local area, have the same meaning as that expression or its local equivalent has in the existing law relating to land tenures in force in that area, and shall also include any jagir, inam or muafi or other similar grant, and in the States of Madras and Kerala any janmam right;
  • (b) the expression ‘rights’, in relation to an estate, shall include any rights vesting in a proprietor, sub-proprietor, under-proprietor tenure-holder, raiyat, under-raiyat or other intermediary and any rights or privileges in respect of land revenue.”

1. Jenmam (Janmam) – Proprietary Right in the Soil

In K. K. Kochunni v. States of Madras and Kerala, AIR 1960 SC 1080, the Supreme Court, while dealing with Article 31A of the Constitution, said:

  • “Under the definition, any jenmom right in Kerala is an ‘estate’. A jenmom right is the freehold interest in a property situated in Kerala. Moor in his “Malabar Law and Custom” describes it as a hereditary proprietorship. A jenmom interest may, therefore be described as ‘proprietary interest of a landlord in lands‘.”

In Purushothaman Nambudiri v. State of Kerala, AIR 1962 SC 694, the Supreme Court held as under:

  • “It seems to us that the basic concept of the word ‘estate’ is that the person holding the estate should be proprietor of the soil and should be in direct relationship with the State paying land revenue to it except where it is remitted in whole or in part”.

In Govindaru Nambooripad v. State of Kerala, 1962 Ker LT 913 :  AIR 1963 Ker 86, it was observed that

  • ‘Thanathu,
  • Thettom,
  • Manavaka,
  • Brahmaswom Vaka,
  • Devaswom Vaka,
  • Kudijenmom,
  • Kanom,
  • Kanom Kudijenmom and
  • Venpattom’

“created by Jenmis” must be held to be covered by the word ‘Estate’ in Art. 31A of the Constitution. It held further as under:

  • “20. It cannot be disputed that these Jenmis and Devaswoms had full proprietary right in the soil and that the lands in which they have ‘Jenmom rights’ are ‘Estates’ within the definition of the word in Article 31-A.”
  • “21. … As regards ‘jnam lands’ it was conceded that the holders had full proprietary rights in the soil. These consist of
    • Pandaravaka Adima,
    • Anubhogam,
    • Thiruvulam,
    • Danom,
    • Pandaravaka Kudijenmom,
    • Erayeli,
    • Viruthi and
    • Karam Ozhivu.
  • Inam lands other than Erayeli and Viruthi (Service Inams) were dealt with under S. 24 of the Revenue Settlement Proclamation of 1061 M.E. (1886 AD). Clause 7 of S. 24 provided:
    • “There shall be no further interference on the part of the Government with these free holds, except such as might be necessary for the punctual realization of the quit rent payable”.
  • Note:
    • 1. It was held in Govindaru Nambooripad v. State of Kerala, AIR 1963 Ker 86 (analysing the 1040 ME (1865), Travancore Proclamation) that the provisions of the Proclamation did not confer on the tenants absolute proprietary rights in the soil.
    • 2. Overruling Govindaru Nambooripad v. State of Kerala, it was held in Rev. Fr. Victor Fernandez v. Albert Fernandez, 1971 Ker LT 1; AIR 1971 Ker 168, that Pandarapattom land in the Travancore area of the State was ‘estate’ within the meaning of Article 31-A(2)(a).

Inams and Viruthi in Travancore

In Neelakantan v. District Collector, Quilon, 1976 KerLT 489 (while dealing with Viruthi holding), it is held as under:

  • “Sec.3 of the Kerala Land Reforms Act exempts lands belonging to or vested in the Government from the operation of the tenancy provisions of the Act.
  • ‘Land belonging to or vested in the Government’ shall have, by virtue of Explanation I to S.3(1) of Act I of 1964, the same meaning as Government land under sub-section (1) of Sec.2 of the Kerala Government land Assignment Act, 1960.
  • Sub-section (1) of S. 2 of the land Assignment Act defines Government land to include all lands wherever situated except in so far as the same are
  • the properties of jenmies or holders of inams, or
  • holders of land subject to the payment of land revenue to the Government or of any registered holder of the land in proprietary right.
  • The argument of the petitioners is that this is ‘the property of the holder of the inam’ and not a Govt. land. That is not so.
  • So far as the Travancore area is concerned the properties of holders of Inams are only those lands comprised in personal inams, i.e., inams granted for support of individual families which are settled as per S.24, Para.2 to 7 of the Revenue Settlement Proclamation, 1061 M. E. Lands attached to specific services are not the property of the inam holders. S.8 of Viruthi Proclamation, 1061, and R.3(1) of the Viruthi Rules clearly provide that the holder of a land attached to specific services has no right over his Viruthi holding except its enjoyment during the regular performance of the service imposed on him. That means, the holding is not the property of the holder of the inam. Therefore the argument that this is not a Government land and therefore the exception claimed under Sec.3 of the Kerala Land Reforms Act will not apply is not sustainable. Leases granted by the Viruthikaran are invalid under R. 3 of the Viruthi rules. The tenancy claimed by the petitioners is in respect of Government lands and as against the Government they have no right to claim any fixity of tenure by virtue of S.3 of the Kerala Land Reforms Act.”

Meaning of the Word ‘Thettom’

  • Generally meant – acquisition by Mortgage.
  • When ‘Thettom’ refers to a property dealing with a Jenmam (Janmam) holder, it can be any ‘subordinate tenure falling short of the full proprietary title‘.
  • When it refers to a property dealing with a Non-Jenmom holder, it may mean a sale’

As regards ‘Thettom’, Raman Menon, C.J., said, in Augusti v. The Dewan of Travancore, 8 Travancore LJ 438, as under:

  • “In S.A. 17 of 1074, this Court remarked:-‘In the Sirkar registry of 1011, the plaint property is entered as ‘Thettom’ in the name of defendants’ Tarwad.
  • That expression, according to its ordinary meaning, implies at least a mortgage lien, if not more, as held by this Court in A.S.166 of 1070 and A.S. 285 of 1071. It always implies something more than a simple lease’.
  • In S.A. 61 of 1075, the terms was taken to be generic and to include ‘all subordinate tenures falling short of the full proprietory title‘.
  • In S.A. 302 of 1075, it was observed that the word ‘Thettom’, as applied to Nambudiri Jenmies, had been held by this court to mean ordinarily a Kanom.
  • In S.A. 48 of 1076, Vencoba Chariar, C.J. and Mr. Justice Kunhiraman Nair construed the words thus:- ‘The chief ground of the plaintiff’s second appeal is that in arriving at this finding the lower courts have not given sufficient weight to the fact appearing from the Ext. B – an old Revenue account – in which the land in dispute is entered as ‘Thettam’ from plaintiff’s Illom; but the word ‘Thettom’ is a somewhat ambiguous one and though, as remarked in the case in 15 TLR 161 and in other cases, it is generally used in the Revenue accounts to signify the Kanom tenure under Jenmies, it is also sometimes used to denote other subordinate tenures‘.
  • In S.A. 343 of 1078, we find the following remarks:-‘Thettom ordinarily means a’Kanom’, and in any case, a derivative title when used in connection with Brahmaswam or Devaswom properties, as in the present case’.
  • Lastly, in A.S. Nos. 59 and 101 of 1083, Sadasiva Iyer, C.J., and Sankara Menon, J., observed thus:-‘Mr. Kochukrishna Marar quotes 15 TLR 161 and says the word ‘Thettom’ means a Kanom or mortgage.
  • No doubt, in the case of Jenmies, it has been so held; but we doubt whether in the case of non jenmies, any meaning other than the ordinary meaning of the word can be given to the word ‘Thettom’. The plaintiffs are Nairs and the tenure claimed is not Jenmom. The ordinary meaning of the word is acquisition. We are inclined to hold that a word ‘Thettom’, in cases of this sort, means only sale’.”
  • (Quoted in: Travancore Devaswom Board v. Uzhithiraru Uzhithiraru, 1957 KLT 315)

In Damodaran v. Sankaranarayanan Namboothiripad, ILR 1963-2 Ker. 707; 1964 KLT 25, the High Court referred to thanathu thettom land (nilam); and observed – it conveys the idea of ‘acquisition’.

Sale of Janmam Properties were Recorded as “Thettoms” in Settlement Register

In 1910 Travancore Settlement Register (and in the sale deeds), lands sold by Janmam holders were recorded as “Thettoms” (Devaswom Thettom/Namboori Thettom etc.).

  • Note: In the 1910 Settlement Register Janmam properties (with Brahmins and Devaswoms) were recorded as “Thanathu”.
  • As noted above, when lands were classified under various heads, in Govindaru Namboodiripad v. State of Kerala, 1962 Ker LT 913 :  AIR 1963 Ker 86, ‘Janmam’ lands were denoted as ‘Tanathu’.

Read blog: Pandaravakapattom and Travancore Royal Proclamations of 1040 (1865) and 1061 (1886)

Status in ‘Janmom’ cannot be Transferred

Theoretically, status in ‘Janmom’ cannot be transferred (it being an inherent right attached to land); though ‘rights in Janmam’ can be transferred.

Pandarapattom lands in Cochin & Travancore – Proprietary Right in the Soil

(In the matter of compensation when acquire land by Govt – under Art. 31A, Constitution)

Following decisions are important in this regard:

  • 1. Purushothaman Nambudiri v. State of Kerala, AIR 1962 SC 694
  • Proprietary Rights to Pandarapattom Lands in Cochin, in view of 1905 Proclamation.
  • N. Rajagopala Ayyangar, J. (descending) referred 1040 Travancore Proclamation, and said that there was only withdrawal of the right by the State and no conferment.
  • 2. Govindaru Nambooripad v. State of Kerala, AIR 1963 Ker 86 (FB)
  • Pandarapattom Confered No Proprietary Rights in Travancore; only treated as holding on perpetual leases. (Overruled in Rev. Fr. Victor Fernandez)
  • 3. Rev. Fr. Victor Fernandez v. Albert Fernandez, AIR 1971 Ker 168 (5 Judge Bench)
  • Proclamation of 1040 (1865 AD), all Sircar-pattom-lands were converted into full proprietary-lands

Purushothaman Nambudiri v. State of Kerala (SC)

  • Confers Proprietary Rights to Pandarapattom Lands in Cochin

In Purushothaman Nambudiri v. State of Kerala, AIR 1962 SC 694, the Supreme Court held (by majority, P.B. Gajendragadkar, A.K. Sarkar, K.N. Wanchoo, K.C. Das Gupta; and N. Rajagopala Ayyangar, dissenting) that Pandarappattom properties come within ‘estate’ under Article 31A of the Constitution. The Apex Court considered the proclamation issued by his Highness Sir Rama Varma Raja of Cochin on March 10, 1905. Clause 13 that rendered ‘full rights to the soil of the lands they hold’.

The Supreme Court (majority) held, with respect to Cochin Regulation, 1905 as under:

  • “It would thus be seen that under clause 13 the person holding lands on the Pandaravaka Verumpattom tenure is not a tenant. He is given the proprietary right in the soil itself, subject of course to the rights as to metals and minerals reserved in favour of the State, indeed, the whole scheme of the new Proclamation appears to be to change the character of the possession of the Pandaravaka Verumpattom tenure-holder from that of a tenant into that of a proprietor-holder. It is true that he is made liable to pay half of the net produce and that may appear to be a little too high, but the measure of the levy will not convert what is intended to be a recovery of assessment Into a recovery of rent. The proprietor of the land held on Verumpattom tenure is nevertheless a proprietor of the land and he holds the land subject to his liability to pay the assessment to the State. It is not difficult to imagine that in a fairly large number of lands held by Pandaravaka Verumpattom tenure-holders the holders in turn would let out the the lands to the cultivators and thus would come into existence a local equivalent of the class of intermediaries. Land revenue record is required to be prepared by the Proclamation and relevant entries showing the extent of the properties belonging to the respective holders and the details about their liability to pay the assessment are intended to be shown in the said record. In our opinion, it would not be reasonable to hold that the ‘lands held by the petitioner under the Pandaravaha Verumpattom tenure do not confer on him the proprietary right at all but make him a tenant of the State“.

Minority: Only Withdrawal of Right by State and No Conferment

But, N. Rajagopala Ayyangar, J., while descending, observed as under:

  • “In this connection I might usefully refer to a proclamation of the ruler of Travancore of 1865 (1040 M. E.) regarding Sarkar-pattom lands, with the observation that subject to variations dependent on local usages, the system of land tenure and the concepts as regards the rights of property in land were substantially similar in Travancore and Cochin. Sarkar-pattom lands were what might be termed ‘Crown lands’ of which the ruler was deemed to be the Jenmi or the landlord. Previous to the proclamation the lands were legally capable of being resumed by the ruler, though this was seldom done and the cultivators were not legally entitled to transfer their rights and where this was done the Government had the right to ignore the transaction. The fact that the cultivator was conceived of as having no proprietary interest on the land also bore adversely on the State since the State was deprived of the means of realising any arrears of revenue by bringing the holding to sale. It was to remedy this situation that the proclamation was issued and the preamble and its terms carry the impress of the impact of the ryotwari system of Madras.”

Referring the 1040 Travancore Proclamation, Ayyangar, J. said that there was only withdrawal of the right by the State and no conferment. It was observed as under:

  • “The language employed in the proclamation is of significance. It speaks of the relinquishment or withdrawal of the right of the State and not of the conferment of a right on the ryot so as to render the ryot a grantee from the State, just in line with the Hindu Law theory of the proprietorship of the soil vesting in the occupant-cultivator.”

Govindaru Nambooripad v. State (FB)

  • Pandarapattom Confers No Proprietary Rights in Travancore

In Govindaru Namboodiripad v. State of Kerala, AIR 1963 Ker 86 (FB), in spite of the decision in Purushothaman Nambudiri v. State of Kerala, AIR 1962 SC 694 (pertained to Cochin), it was held that Pandarapattom (Pandaravaka pattom, Pandaravakappattom, or Pandarappattom) lands in the Travancore area cannot have the protection of Article 31A of the Constitution. Analysing the 1040 ME Travancore Proclamation, it was held by the High Court as under:

  • “11. The provisions of the Proclamation do not, in our opinion, confer on the tenants absolute proprietary rights in the soil. There is no clause by which the Sirkar parted with all rights in favour of the tenants and in the absence of such a provision, the holders of such lands can only be treated as holding such lands on perpetual leases.”
  • Note: Overruling Govindaru Nambooripad v. State of Kerala, it was held in Rev. Fr. Victor Fernandez v. Albert Fernandez, 1971 Ker LT 1; AIR 1971 Ker 168, that Pandarapattom land in the Travancore area of the State was ‘estate’ within the meaning of Article 31-A(2)(a).

Rev. Fr. Victor Fernandez Case (Five Judge Bench)

  • Pandarapattom Confers Proprietary Rights in Travancore also

The larger Bench in Rev. Fr. Victor Fernandez v. Albert Fernandez, 1971 Ker LT 1, AIR 1971 Ker 168, overruled Govindaru Namboodiripad v. State of Kerala, AIR 1963 Ker 86, and it was held that Pandara-pattom land in the Travancore area of the State was (also) ‘estate’ within the meaning of Article 31-A(2)(a). 

It was found in Rev. Fr. Victor Fernandez case that by the Proclamation of 1040 (1865 AD), all Sircar-pattom-lands were converted into full proprietary-lands, and rights on tenants of Pandarapattom lands had thenceforth been conferred with proprietary-rights.

In Rev. Fr. Victor Fernandez v. Albert Fernandez, 1971 Ker LT 1, AIR 1971 Ker 168, it was observed as under:

Per PT Raman Nayar, CJ, T Krishnamoorthy Iyer, P Unnikrishna Kurup, JJ.:

  • “11. …. We have already shown how, in the face of the Proclamation of 1040, it is impossible to regard the holders of these lands as tenants in the strict sense of that term having only the right to enjoy the land and no interest in the land as such. We have also drawn attention to the fact that what they pay to the Government is, under the very terms of the Proclamation, assessment or land tax, in other words, land revenue, and not rent properly so-called. As stated in 1962 Ker LT 913 = (AIR 1963 Ker 86 FB). with reference to contemporary documents, the avowed purpose of the Proclamation of 1040 was to place pandarapattam lands on the same footing as ryotwari lands in the neighbouring province of Madras, and wo have no doubt that it succeeded in doing so. If the relations between the holder of a land and the Government are placed on the same footing as the relations between the holder of ryotwari land and the Government, it seems to us that it necessarily follows that the land is held under ryotwari settlement–it is the factual relationship and not the label that counts and no concept of legal rights is involved. ….

Per KK Mathew, J.

  • 17……. To my mind the terms of the Proclamation leave no doubt that full proprietary interest has been conferred upon the holders of pandarapattom lands. ….Clause (2) is the pivotal clause; and it provides that the ryots holding such lands may regard them fully private, saleable and otherwise heritable and transferable property. Clause (4) guarantees the continued undisturbed enjoyment of the land so long as the appointed assessment is paid. Clause (6) makes it clear that the lands will be resumable by the State like other jenmom or private land only for public purpose and when resumed for such purposes compensation will be paid by the Sirkar not only for the improvements but also for the full market value of the property. Clause (7) provided that the rights conferred by the Proclamation would not in any way affect the right of the Sirkar to regulate land tax or to resume escheats or to confiscate the property of criminals. Clauses (6) and (7) are very significant. What are reserved to the Sirkar by Clauses (6) and (7) are not anv proprietary rights in the land. The rights which inhere in every sovereign in respect of every property within his jurisdiction like eminent domain, the right to impose or regulate tax, to resume escheats, to confiscate property of criminals, are alone reserved by those clauses. They not only do not derogate from the grant of full proprietary interest made by Clauses (1), (2) and (4), but would highlight that no proprietary rights have been reserved to the State. If the sovereign was careful to reserve to himself in respect of these lands only those rights which appertain to sovereignty and not any right which relates to dominium, that is a clear indication that no right relating to dominium was intended to be retained by the Sirkar. Even if the clauses were absent, the Sirkar would have those rights as they appertain to sovereignty and not to dominium. In other words, if by way of abundant caution the clauses reserved to the Sirkar only rights which appertain to sovereignty, there was absolutely no reason why the rights, if any, relating to dominium or ownership were not reserved, if the sovereign intended to retain any right in respect of the lands.….. I think, a holder of pandarapattom land satisfies even the orthodox definition   of ownership by Austin.   Austin defines the right of ownership as a–“right indefinite in point of user, unrestricted in point of disposition, and unlimited in point of duration, over a determinate thing.” (See ‘Jurisprudence’ by Austin, 3rd Edn., page 817.) 
  • 19. The basic concept of ‘estate’ is that the person holding the estate should be the proprietor of the soil and should be in direct relationship with the State by paying land revenue to it except where it is remitted in whole or in part. See AIR 1962 SC 694. As I have said the pattom Proclamation conferred full proprietary rights on tenants of pandarapattom lands, and they are also in direct relation with the State by paying land revenue. Since there is no definition of the word ‘estate’ in the existing local law relating to land tenure, pandarapattom land is the local equivalent of ‘estate,’ because its attributes conform to the basic concept of the term.”

Note: Another decision (with the same parties), Rev. Fr. Victor Fernandez v. Albert Fernandez, 1971 KLT 216, AIR 1973 Ker 55,  was overruled in Velayudhan Vivekanandan v. Ayyappan  Sadasivan, ILR 1975-1 Ker 166; 1975  KerLT 1.

Effect of Royal Pattom Proclamations of 1040 and 1061

Royal Proclamations of 1040 and 1061 bound only Travancore Govt. Leases or ‘Pandarappattoms’.

In Rev. Fr. Victor Fernandez v. Albert Fernandez (five Judge Bench), 1971 Ker LT 1, AIR 1971 Ker 168 (Per PT Raman Nayar, CJ, T Krishnamoorthy Iyer, P Unnikrishna Kurup, JJ.), concluded that the land covered by the Royal Proclamations of 1040 and 1061 were “estates” falling under Art. 31A of the Constitution.

It was on the definite finding that –

  • the Proclamation “secured permanency of tenure” (to the tenants),
  • conferred (on the tenants) “proprietary interest” in the soil; and
  • the Government did not remain as the full and absolute proprietor

The Court said as under:

  • “7. It is impossible to accept the contention advanced on behalf of the plaintiff in this case that, even after the Proclamation of 1040, the holders of these lands had no proprietary interest whatsoever in the soil and remained tenants in the strict sense of that term, with only the right of enjoyment, the only difference being that they secured permanency of tenure, the Government still remaining the full and absolute proprietor of the soil.”

Effect of the Proclamations over ‘Government Land Leases after 1061 (1886)?

Now a question arises:

What is the impact of 1040 and 1061 (1886) Proclamations over the ‘Government Land Leases’ (Pandaravakappattoms) made after 1061 (1886)?

Do such leased lands qualify as “estate” under Article 31A of the Constitution?

  • The legitimate answer is that the lands leased out (by the Government) after 1061 (1886) do not acquire the rights of ‘permanency of tenure’ or attain the ‘proprietary interest’ conferred by the Pattom Proclamations of 1040 and 1061.
  • If such rights of permanency and ‘proprietary interest’ are axiomatically conferred as a matter of course (to the lese lands after 1061), the result would be that the Government cannot ‘lease’ lands (after the Proclamations), for, the lease character would be lost at the moment it is made.

In George A Leslie v. State of Kerala, 1969 KLT 378, it was observed as under:

  • ” 9. Ext. P 1 is a grant made under the Travancore Regulation II of 1040 and the Rules for the sale of Waste Land on the Travancore Hills dated 24th April 1865. …
  • 12. Reference was made by counsel for the petitioners to the Travancore Pattom Proclamation of 1040, which conferred full rights in the land on tenants of pandarapattom land, and the subsequent proclamations and notifications by which they acquired the full title to the trees in the land. They have no application to the land or trees comprised in Ext. P 1 grant.”

Therefore, there is a clear difference between leases made before and after the Proclamations; and the rights conferred by the Proclamations do not apply to leases made after them.

1865 Travancore Proclamation and 1905 Cochin Proclamation

In Purushothaman Nambudiri v. State of Kerala, AIR 1962 SC 694, the Supreme Court (Rajagopala Ayyankar, J. Minority) pointed out the requirement and purport of these Proclamations. It reads as under:

  • “The evils which the system gave rise to, the economic insecurity of the tenant and the consequent lack of incentive on his part to put his best exertion on the land and the resultant loss to the state in the shape of revenue as well as the rise of a contented peasantry were exactly parallel to the situation which faced the ruler of Travancore leading to the proclamation of 1865. It was in these circumstances that the ruler of Cochin issued a proclamation on March 10, 1905, which defined with precision the rights of the State and of the cultivator in regard to these lands …”

Ayyankar, J. (Minority) observed that there was “conferment of proprietary rights by the Cochin Proclamation of 1905″ and “relinquishment by the State under the Travancore Proclamation of 1865″.

Finally, the Majority held that by virtue of the Cochin Proclamation of 1905 the holders of the Pandaravaka-verumpattom lands in Cochin were holding the property as “estate” within the meaning of Article 31A of the Constitution, and that the challenge thereon (to the Kerala Agrarian Relations Act, 1961) was not sustainable.

Kesavananda Bharati Case

29th Amendment of the Constitution of India put Kerala Land Reforms Amendment Act, 1969 and Kerala Land Reforms (Amendment) Act, 1971, in IXth schedule. It was argued in Kesavananda Bharati case, known is as ‘Fundamental Rights Case’ [His Holiness Kesavananda Bharati Sripadagalvaru v. State of Kerala: AIR 1973 SC 1461] that the amendments, that took away or abridged ‘fundamental rights’, were invalid.

Kesavananda Bharati case is one of the most important cases taken up by the Supreme Court of India. Largest ever bench of the Supreme Court (13 judges) considered it.  Kesavananda credits the longest ever hearing in the history of the Supreme Court; it took 66 days, spread over to 5 months.

Points considered

The 13 judge bench was constituted to consider whether Golak Nath [IC Golak Nath v. State of Punjab: AIR 1967 SC 1643] was correctly decided. It had been held in Golak Nath, by an 11 judge bench, that the Parliament could not amend fundamental rights guaranteed in Part III of the Constitution.

Rival contentions:

Nani A Palkhivala led arguments for the petitioners. He emphasized:

  1. Article 368 (Provision for amendment of the Constitution) does not override Article 13(2). The power of the Parliament to amend the Constitution is derived from Articles 245, 246 and 248 of the Constitution and not from Article 368 which only deals with procedure.
  2. The word ‘amendment’ has ‘limited’ meaning (something can be modified but without change of core) and there are ‘inherentand implied limitations’  to abrogate or repeal the Constitution (though not express; inherent in Constitution itself) for altering the essential features or basic structure of Constitution. It was explained by Palkhivala as under: “The principle of inherent and implied limitations means: deducing that is left unsaid from what is said, and perceiving what is implicit in the express provision and scheme of the instrument”. 
  3.  Palkhivala argued against unlimited amending power elucidating the essential features of our constitution, which included sovereignty, the republican form of government, the federal structure and the fundamental rights (as a whole). They were unchangeable.  Founding fathers of the Constitution considered fundamental rights as ‘fundamental’.  
  4. The Constitution is supreme. The Parliament is a creature of Constitution. Therefore, the Parliament cannot increase the power conferred to it or destroy essential/basic feature or basic structure of the Constitution. That is, there is implied limitation for the Parliament. 
  5. The Preamble of the Constitution limits ‘unlimited power of the Parliament. 
  6. If Parliament has unlimited power, it can make judiciary and executive completely subordinate or take over their powers.
  7. Ultimate power is vested with ‘We, the people’
  8. The Constitution gives the Indian citizen freedoms which are to subsist for ever. If Article 31C is valid, Parliament and State Legislatures, and not the Constitution, will determine how much freedom is good for the citizens.

H.M. Seervai (for State of Kerala) and Niren De (Attorney General) stood for unlimited amending power.  They stressed the following:

  1. Unless there are no express words, or compelling implication from the existing provisions, for limiting extent of amendment, then there will be no implied limitation.
  2. Government is duty bound to give effect to Directive principles (Part IV of the Constitution) and to enact ‘Laws’ to achieve those objectives.
  3. The acceptance of concepts like ‘implied limitation’, which have no definite contours, would introduce uncertainty and vagueness. 
  4. No test can be applied to essential or non-essential feature.  
  5.  The constituent assembly made no distinction between essential and non-essential features.
  6. None in the constituent assembly said – fundamental rights could not be amended. 
  7. The expression ‘an amendment of this Constitution’ in Article 368 meant amendment of each and every provisions of Constitution. Article 368 not only prescribes the procedure but also gives the power of amendment   
  8.  If Constitution-makers intended that the fundamental rights should override Article 368, it is reasonable to assume that they would have made an express provision to that effect.  The Preamble cannot control the unambiguous language of the articles of the Constitution. The Constitution of India is one of the lengthiest Constitutions, if not the lengthiest of the world. 
  9. The expression ‘fundamental’ does not lift the fundamental rights above Constitution itself.
  10. There is distinction between Constituent power and legislative power.  Article 13(2) pertains to legislative power alone. 
  11.  The Constitution did not envisage a constituent assembly, in future, to abridge or change fundamental rights.

Palkhivala contended that wide power to amend the Constitution would result ‘in liquidation of Constitution’. Attorney General (Niren De) retorted that ‘unambiguous meaning of amendment’ should not be destroyed ‘to nurse the theory of implied limitation’.

Final outcome of Kesavananda Bharati

It is a never ending controversy.

13 Judges delivered 11 judgments. (There were two ‘common judgments’.) In the paper titled “View by the Majority” signed by Chief Justice (S.M.Sikri) and other 8 Judges (9 only) contained six points. It stated:

  • (1) Golak Nath case is overruled. 
  • (2) Article 368 does not enable Parliament to alter the basic structure or frame work of the Constitution. 
  • (3) The Constitution (Twenty-fourth Amendment) Act, 1971 is valid. (It was passed to get over Golek Nath.) 
  • (4) Section 2(a) and 2(b) of the Constitution (Twenty-fifth Amendment) Act, 1971 is valid. (It pertained to ‘right to property’. Art. 31 & 19(1)(f) and Added Art. 31C.) 
  • (5) The first part of Section 3 of the Constitution (Twenty-fifth Amendment) Act, 1971 is valid. (New Article 31C provided: [first part] the laws which give effect to Directive Principles will not be void on the allegation that it is inconsistent with certain fundamental rights.) The second part, namely, “and no law containing a declaration that it is for giving effect to such policy shall be called in question in any Court on the ground that it does not give effect to such policy” is invalid. 
  • (6) The Constitution (29th Amendment) Act, 1971 is valid. (It put Kerala Acts in the 9th Schedule.)
  • The Constitution bench will determine the validity of the Constitution (Twenty-sixth amendment) Act, 1971 in accordance with law. (It related to abolition of privy purses and privileges of princes.)

(1)  Judgment at a glance

Unanimous decision

  • Article 368 is independent from, and  not controlled by, Article 13(2).
  • Golak Nath is overruled.
  • 24th Constitutional Amendment Act is valid.

6 Judges accepted argument of Palkhiwala

Following Judges accepted the argument of Palkhiwala and held: (entire) fundamental rights (as such) were essential features of the Constitution and therefore there was implied limitation to abrogate or repeal them (though they could be abridged).  

  1. S.M. Sikri, CJ  
  2. J.M. Shelat  
  3. A.M. Grover  
  4. K.S. Hegde  
  5. A.K. Mukherjea
  6. P. Jaganmohan Reddi

6 Judges accepted argument of Government

Following Judges accepted argument of Government in this regard. That is, there was unlimited power of amendment – even fundamental rights also could be repealed.

  1. A.N. Ray
  2. D.G. Palekar
  3. K.K. Mathew
  4. M.H. Beg
  5. S.N. Dwivedi
  6. Y.V. Chandrachud

Khanna, J. took ‘Midway’ [as qualified by Palkhivala in (1974) 4 SCC Journal 57]

Khanna, J. rejected argument on ‘essential features’ and ‘implied limitation’ & proceeded on ‘basic structure doctrine’ alone. He held: power of amendment extends to all Articles including fundamental rights; and only restriction is that the basic structure of the Constitution should not be changed.

No essential featuresNo implied limitation

  • All Sikri (CJ) – led 6 Judges held: Fundamental rights could not be abrogated, (though they could be abridged, by amendment).
  • CJ, Sikri led judges (except Jaganmohan, J) accepted argument of Adv. Palkhivala that the fundamental rights are essential features of the Constitution and that there was implied limitation to change or amend the fundamental rights. 
  • J. Ray led 6 judges were of the definite opinion that there was no limitation at all to amend the Constitution and therefore fundamental rights also could be ‘amended’ – it could be abrogated or repealed.
  • Khanna J discarded both ‘essential features’ theory  and ‘implied limitation’ theory; and held: fundamental rights also could be ‘added, altered or repealed’.
  • Therefore, majority (J. Ray led judges + Khanna, J.) decision emerged was that: There was “no implied limitation” to amend the Constitution; that is, even the fundamental rights could be ‘repealed

Khanna J. ‘Tipped the scales’

Kesavananda Bharati is fundamental right’s case. The crux was whether fundamental rights could be ‘amended’. CJ. Sikri-led six judges stood for limited power of the Parliament to amend the Constitution. They held – fundamental rights could not be abrogated or repealed.  Broadly speaking, J. Khanna joined with them for he held: Parliament has no unlimited power to amend the Constitution.

 J. Khanna also joined six J. Ray-led judges when he held – fundamental rights also could be repealed.  Therefore the majority decision turned out was that fundamental rights are also subject to ‘amendment power’ of the Parliament.

Finally the ‘mid-way’ stance of J. Khanna ‘tipped the scales’ in favour of CJ. Sikri-led-judges which paved way to emerge basic structure doctrine as the ‘essential feature’ of Kesavananda.

Final outcome – ‘Basic Structure Doctrine’: But, No Common Ratio?

  • Khanna, J. asserted: Art. 368 cannot be “so construed as to embody the death-wish of the Constitution or provide sanction for what may perhaps be called lawful hara-kiri”. 
  • It is clear that Khanna, J. propounded ‘basic structure’ doctrine not in the way that was upheld by Sikri (CJ.) led  judges. It was not in the way exactly argued by Palkhivala also. For discarding the ‘implied limitation’ theory and ‘essential features’ theory (these theories were accepted by Sikri-led judges), Khanna, J. accepted the arguments of Seervai and Attorney General in this regard. But, finally, by the ‘View by the Majority’ signed by nine judges, the view (minority?) of Khanna, J. (ie. basic structure doctrine) was emerged as the ‘ratio’ of the case.
  • Seervai in his treatise ‘Constitutional Law of India’ stated as under, on page 1626:  “If the ‘fundamental rights case’ is stood by itself, it was possible to argue that the judgment of 7 Judges [Sikri (CJ) led judges + Khanna, J.] as to the basic structure disclosed no common ratio”.

Even CJ. Sikri-led-judges ‘diluted’ fundamental rights

CJ. Sikri led (6) judges (six only) held definitely that fundamental rights were not liable to be abrogated by amendment; and it is very important to note that even these 6 judges held that the fundamental rights were subject to reasonable abridgement, in the public interest; and the power of ‘amendment’ reached every part and every article of the Constitution, provided the basic foundation or structure remained the same. All these judges (also) varied from Golak Nath which unconditionally held – fundamental rights cannot be varied/ amended.

Did Khanna J. hold every ‘fundamental right’ was part of basic structure?

Justice Khanna held the following in his Judgment:  “Subject to the retention of the basic structure or frame work of the Constitution, I have no doubt (i) that the power of amendment is plenary and (ii) would include within itself the power to add, alter or repeal the various articles including those relating to fundamental rights  as well as which may be said to relate to essential features”.

Divergent views as to Judgment of Khanna, J.:

  1. Khanna, J. did not hold– fundamental rights were part of basic structure.  Seervai stated as under in ‘Constitutional Law of India’ (Page 1625) – “His (Khanna, J.) Judgment was capable of being read to mean that according to him fundamental rights (as such) were not a part of the basic structure of our Constitution and it was so read by Chandrachud, J. in the Election case (Indira Nehru Gandhi v. Raj Narayan)”. (The idea conveyed is that, by ‘basic structure’ it brought-in broad aspects like ‘democracy, sovereignty, federalism’ etc. and it is not confined to any specific Part or Article.)
  2. Khanna J. held– fundamental rights might be part of basic structure. Bhagawati, J., in Minerva Mills case [AIR 1980 SC 1789], pointed out that Khanna, J. did not hold that fundamental rights (as such) were not a part of the basic structure. Bhagawati, J. observed: “The very fact that Khanna, J. proceeded to consider this question (whether right to property, appertained to basic structure) shows beyond doubt that he did not hold that fundamental rights (as such) were not part of the basic structure; but so far as other fundamental rights were concerned, he left the question open”.
  3. Khanna J. held – fundamental rights were part of basic structure. Khanna, J. himself, also, had ‘explained’ in Election Case (Indira Nehru Gandhi v. Raj Narayanan, AIR 1975 SC 2299) as under:
    • “It is difficult to read anything in my judgment to justify the conclusion that fundamental rights (as such) were not part of the basic structure”. 

What was the dictum on ‘right to property’?

The following two majority findings in Kesavananda are important:

  1.   The right of the Parliament to amend the Constitution is limited.  There are certain essential features or basic structure which cannot be discarded. (Sikri (CJ) led judges + Khanna J)
  2.   Fundamental rights are also open to ‘amendment’. (J. Ray led judges + Khanna J)

In the light of the aforesaid two majority findings the following decision of Khanna, J. (single Judge) emerges as a declaration/ dictum (having force of law under Art. 141 of the Constitution) of Kesavananda on the right to property:  “Right to property in Art. 19(1)(f) does not form part of the basic structure”(so that it cannot be amended).

For the finding of Khanna, J. that right to property did not form part of the basic structure (though a fundamental right) the Constitutional validity of the Kerala Land Reforms (Amendment) Act, 1971 stood upheld.

Conclusion

The Kerala Land Reforms Act, 1963 was not a sporadic one. There were several pre-independence enactments that paved the way to the Act. The Kerala Agrarian Relations Bill, 1957 of the ‘Communist Government’ was a post-independent land-mark mile-stone in that line.  The courts in India, especially the Supreme Court of India, supported the wisdom of the Parliament in Land Reform measures observing that they were in concordance with the Constitution of India.

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‘Legal Representatives’, Not ‘Legal Heirs’, to be Impleaded on Death of Plaintiff/Defendant

Saji Koduvath, Advocate, Kottayam.

Introduction

Order XXII rule 3 of the Code of Civil Procedure lays down the ‘Procedure in case of death of one of several plaintiffs or of sole plaintiff’; rule 4 speaks as to the ‘Procedure in case of death of one of several defendants or of sole defendantto implead the legal representatives of the deceased defendant.  Order XXII rule 5 of the CPC directs the courts to determine the ‘Question as to Legal Representative’.

Order XXII Rule 3 of the CPC reads as under:

  • 3. Procedure in case of death of one of several plaintiffs or of sole plaintiff.(1) Where one of two or more plaintiffs dies and the right to sue does not survive to the surviving plaintiff or plaintiffs alone, or a sole plaintiff or sole surviving plaintiff dies and the right to the sue survives, the Court, on an application made in that behalf, shall cause the legal representative of the deceased plaintiff to be made a party and shall proceed with the suit.
  • (2) Where within the time limited by law no application is made under sub-rule (1), the suit shall abate so far as the deceased plaintiff is concerned, and, on the application of the defendant, the Court may award to him the costs which he may have incurred in defending the suit, to be recovered from the estate of the deceased plaintiff.

Order XXII Rule 4 of the CPC reads as under:

  • 4. Procedure in case of death of one of several defendants or of sole defendant.- (1) Where one of the two or more defendants dies and the right to sue does not survive against the surviving defendant or defendants alone, or a sole defendant or sole surviving defendant dies and the right to sue survives, the court, on an application made in that behalf, shall cause the legal representative of the deceased defendant to be made a party and shall proceed with the suit.
  • (2) Any person so made a party may make any defence appropriate to his character as legal representative of the deceased defendant.
  • (3) Where within the time limited by law no application is made under sub-rule (1), the suit shall abate as against the deceased defendant.
  • (4)The court whenever it thinks fit, may exempt the plaintiff from the necessity of substituting the legal representatives of any such defendant who has failed to file a written statement or who, having filed it, has failed to appear and contest the suit at the hearing; and judgment may, in such case, be pronounced against the said defendant notwithstanding the death of such defendant and shall have the same force and effect as if it has been pronounced before death took place.
  • (5) Where,—
    • (a) the plaintiff was ignorant of the death of a defendant, and could not, for that reason, make an application for the substitution of the legal representative of the defendant under this rule within the period specified in the Limitation Act, 1963 (36 of 1963), and the suit has, in consequence, abated, and
    • (b) the plaintiff applies after the expiry of the period specified there for in the Limitation Act, 1963 (36 of 1963), for setting aside the abatement and also for the admission of that application under section 5 of that Act on the ground that he had, by reason of such ignorance, sufficient cause for not making the application within the period specified in the said Act,
  • the court shall, in considering the application under the said section 5, have due regard to the fact of such ignorance, if proved.

Order XXII Rule 5 of the CPC reads as under:

  • 5. Determination of Question as to Legal Representative. Where a question arises as to whether any person is or is not the legal representative of a deceased plaintiff or a deceased defendant, such question shall be determined by the Court:
  • Provided that where such question arises before an Appellate Court, that Court may, before determining the question, direct any subordinate Court to try the question and to return the records together with evidence, if any, recorded at such trial, its findings and reasons therefor, and the Appellate Court may take the same into consideration in determining the question.

Injunction Suit and ‘Right to Sue Survives’

Observing that there is a distinction between the death of the plaintiff and the death of the defendant, it is held that Venkubai v. Assistant Commissioner, Sedam, Gulbarga District, 1999-1 CivCC 119; 1998-5 KarLJ 171, that the decree of injunction would become infructuous on the death of the (sole) defendant or the party against whom injunction is granted.

In Venkubai v. Assistant Commissioner, Sedam, Gulbarga it was further observed that if the person who got an injunction were to die, certainly his L. Rs would be entitled to the benefit of the decree. (Krishna Behari Goel v. Raj Mangal Persad, AIR 1954 All 182 referred to.)

Direction in Proviso to Order XXII Rule 5 of the CPC is not Mandatory

It is clear from the wordings (Court MAY) of the ‘Proviso’  that “direct any subordinate Court to try the question” (where such question arises before an Appellate Court) is not mandatory.

Proceedings, Summary in Nature

The jurisdiction to determine who is a legal heir is summary in nature. Varadarajan v.  Kanakavalli, AIR 2020 SC 740. Such determination will not confer any right to the legal representatives, as regards any other claim, as to the estate of the deceased.

No Conclusive Decision on Legal heirs or Legal Representatives

In Jaladi Suguna v. Satya Sai Central Trust, (2008) 8 SCC 521, our Apex Court held as under:

  • “15. Filing an application to bring the legal representatives on record, does not amount to bringing the legal representatives on record. When an LR application is filed, the court should consider it and decide whether the persons named therein as the legal representatives, should be brought on record to represent the estate of the deceased. Until such decision by the court, the persons claiming to be the legal representatives have no right to represent the estate of the deceased, nor prosecute or defend the case. If there is a dispute as to who is the legal representative, a decision should be rendered on such dispute. Only when the question of legal representative is determined by the court and such legal representative is brought on record, can it be said that the estate of the deceased is represented. The determination as to who is the legal representative under Order 22 Rule 5 will of course be for the limited purpose of representation of the estate of the deceased, for adjudication of that case. Such determination for such limited purpose will not confer on the person held to be the legal representative, any right to the property which is the subject-matter of the suit, vis-à-vis other rival claimants to the estate of the deceased.” (Quoted in: Mahanth Satyanand @ Ramjee Singh v. Shyam Lal Chauhan, 2018-18 SCC 485; Varadarajan v.  Kanakavalli , AIR 2020 SC 740)

Proceedings Court Cannot be Postponed

The court has to decide on merits who are the legal representatives of the deceased for the limited purpose of representation of the estate of the deceased of that case. The court cannot postpone the determination.

The Apex Court (Jaladi Suguna v. Satya Sai Central Trust) continued as under:

  • “The provisions of Rule 4 and 5 of Order XXII are mandatory. When a respondent in an appeal dies, the court cannot simply say that it will hear all rival claimants to the estate of the deceased respondent and proceed to dispose of the appeal. Nor can it implead all persons claiming to be legal representatives, as parties to the appeal without deciding who will represent the estate of the deceased and proceed to hear the appeal on merits. The court cannot also postpone the decision as to who is the legal representative of the deceased respondent, for being decided along with the appeal on merits. The Code clearly provides that where a question arises as to whether any person is or is not the legal representative of a deceased respondent, such question shall be determined by the court.
  • … … Though Rule 5 does not specifically provide that determination of legal representative should precede the hearing of the appeal on merits, Rule 4 read with Rule 11 makes it clear that the appeal can be heard only after the legal representatives are brought on record”. (Quoted in: Mahanth Satyanand @ Ramjee Singh v. Shyam Lal Chauhan, 2018-18 SCC 485)

In Daya Ram v. Shyam Sundari, AIR 1965 SC 1049, it was held that the legal representatives are impleaded for the purpose of a suit alone and that the impleaded legal representatives sufficiently represent the estate of the deceased and the decision obtained with them on record would bind not merely those impleaded but the entire estate, including those not brought on record (Referred to in Varadarajan v.  Kanakavalli , AIR 2020 SC 740).

In Suresh Kumar Bansal v. Krishna Bansal  (2010) 2 SCC 162 the Supreme Court held as under:

  • “20. It is now well settled that determination of the question as to who is the legal representative of the deceased plaintiff or defendant under Order 22 Rule 5 of the Code of Civil Procedure is only for the purpose of bringing legal representatives on record for the conducting of those legal proceedings only and does not operate as res judicata and the inter se dispute between the rival legal representatives has to be independently tried and decided in probate proceedings. If this is allowed to be carried on for a decision of an eviction suit or other allied suits, the suits would be delayed, by which only the tenants will be benefited.”

No Res Judicata

The summary decision as to who are the legal representatives of the deceased will not be res judicata and the disputes thereon can be independently tried in other proceedings including probate proceedings (Suresh Kumar Bansal v. Krishna Bansal,  (2010) 2 SCC 162).

Punjab & Haryana High Court in Mohinder Kaur v. Piara Singh, AIR 1981 P&H 130, held that a decision under Order XXII Rule 5 would not be res judicata in a subsequent suit. It was held as under:

  • “5. So far as the first argument of Mr. Bindra, noticed above is concerned, we find that in addition to the judgments of the Lahore High Court and of this Court, referred to in the earlier part of this judgment, he is supported by a string of judgments of other High Courts as well wherein it has repeatedly been held on varied reasons, that, a decision under Order 22, Rule 5, Civil Procedure Code, would not operate as res judicata in a subsequent suit between the same parties or persons claiming through them wherein the question of succession or heirship to the deceased party in the earlier proceedings is directly raised. Some of these reasons are as follows:—
  • (i) Such a decision is not on an issue arising in the suit itself, but is really a matter collateral to the suit and has to be decided before the suit itself can be proceeded with. The decision does not lead to the determination of any issue in the suit.
  • (ii) The legal representative is appointed for orderly conduct of the suit only. Such a decision could not take away, for all times to come, the rights of a rightful heir of the deceased in all matters.
  • (iii) The decision is the result of a summary enquiry against which no appeal has been provided for.
  • (iv) The concepts of legal representative and heirship of a deceased party are entirely different.
  • In order to constitute one as a legal representative, it is unnecessary that he should have a beneficial interest in the estate. The executors and administrators are legal representatives though they may have no beneficial interest. Trespasser into the property of the deceased claiming title in himself independently of the deceased will not be a legal representative. On the other hand the heirs on whom beneficial interest devolved under the law whether statute or other, governing the parties will be legal representatives.” (Quoted in Varadarajan v.  Kanakavalli, AIR 2020 SC 740. See also: Dashrath Rao Kate v. Brij Mohan Srivastava (2010) 1 SCC 277).

Legal Representatives Need Not be the Legal Heirs.

A legatee under a will can be a legal representative.  

  • See: Varadarajan v.  Kanakavalli, AIR 2020 SC 740,
  • Suresh Kumar Bansal v. Krishna Bansal, (2010) 1 SCC (Civ) 365;
  • Jaladi Suguna v. Satya Sai Central Trust, (2008) 8 SCC 521.

‘Legal representative’ according to its definition in section 2(11) of CPC is a person who in law represents the estate of a deceased person and includes any person who intermeddles (administers or executors) with the estate of the deceased and where a party acts in a representative character, the person on whom the estate devolves on the death of the party so acting.

If Many Heirs, those in Possession Entitled to Represent

If there are many heirs, those in possession bona fide, without there being any fraud or collusion, are also entitled to represent the estate of the deceased. See. Custodian of Branches of Banco, v. Nalini Bai Naique, AIR 1989 SC 1589.

Representation of/by Some Heirs, Binds also who are not brought on record

In Daya Ram v.  Shyam Sundari, AIR 1965 SC 1049, the Supreme Court held that if after bona fide inquiry, some, but not all the heirs, of a deceased defendant, are brought on record the heirs so brought on record represent the entire estate of the deceased and the decision of the Court in the absence of fraud or collusion binds even those who are not brought on record as well as those who are impleaded as legal representatives of the deceased defendant.

In NK Mohammad Sulaiman v. NC Mohammad Ismail, AIR 1966 SC 792, the Supreme Court rejected the contention that the auction purchaser obtained title only to the extent of the interest of the heirs who were impleaded eo nominee; and held that

  • (i) those who were impleaded, may ‘sufficiently represent’ the entire estate and all heirs,
  • (ii) the rule enunciated was of the domain of procedural law and applied to all communities irrespective of the religious persuasion or personal law and
  • (iii) where after due enquiry certain persons were impleaded after diligent and bona fide enquiry in the genuine belief that they were the only persons interested in the estate, the whole estate of the deceased would be duly represented by the persons who were brought on the record or impleaded, and the decree would be binding upon the entire estate.

Execution of a Decree – No abatement

Order 22 Rule 12 reads as under:

  • “Application of order to proceedings. Nothing in Rules 3, 4 and 8 shall apply to proceedings in execution of a decree or order.”

V. Uthirapathi v. Ashrab, (1998) 3 SCC 148, it is held that abatement does not apply to execution proceedings. It is held as under:

  • “12. In other words, the normal principle arising in a suit — before the decree is passed — that the legal representatives are to be brought on record within a particular period and if not, the suit could abate, — is not applicable to cases of death of the decree-holder or the judgment-debtor in execution proceedings.
  • 13. In Venkatachalam Chetti v. Ramaswami Servai [ILR (1932) 55 Mad 352 : AIR 1932 Mad 73 (FB)] a Full Bench of the Madras High Court has held that this rule enacts that the penalty of abatement shall not attach to execution proceedings.
  • Mulla’s Commentary on CPC [(Vol. 3) p. 2085 (15th Edn., 1997)] refers to a large number of judgments of the High Courts and says:
    • “Rule 12 engrafts an exemption which provides that where a party to an execution proceedings dies during its pendency, provisions as to abatement do not apply. The Rule is, therefore, for the benefit of the decree-holder, for his heirs need not take steps for substitution under Rule 2 but may apply immediately or at any time while the proceeding is pending, to carry on the proceeding or they may file a fresh execution application.”
  • 14. In our opinion, the above statement of law in Mulla’s Commentary on CPC, correctly represents the legal position relating to the procedure to be adopted by the parties in execution proceedings and as to the powers of the civil court.” (Quoted in: Varadarajan v.  Kanakavalli, AIR 2020 SC 740).

A representative suit does not abate on the death of the plaintiff

In G. Christhudas v. Anbiah, 2003-3 SCC 502, the Apex Court held that a representative suit does not abate on the death of the plaintiff. It is for two reasons:

  • Firstly the plaintiff does not represent only himself but represents all other persons on whose behalf he is prosecuting the suit, thus all those persons are also parties to the suit albeit constructively, the conduct of the suit being in the hands one person to whom permission has been granted by the court and in case of his death, any other person can continue the suit.
  • And secondly, the persons represented by the plaintiff cannot said to be legal representatives of the deceased plaintiff within meaning of Section 2 (11) of Code of Civil Procedure and hence the provisions of order 22 would not apply to such case. (See: Sadati Al Hussaini Al Jalali Trust v. Qasim Ganaie (J&K High Court, 03.05.2024)

It is pointed out in Sadati Al Hussaini Al Jalali Trust v. Qasim Ganaie (J&K High Court, 03.05.2024) that the same view had also been taken by the Apex Court the following two earlier cases also.

  • Charan Singh v. Darshan Singh, 1975 (1) SCC 298;
  • Karuppaswamy v. C. Ramamurthy, 1993(4) SCC 41,

On death of a Trustee new Trustee cannot be a Legal Representative

The Apex Court had held that on the death of a trustee new trustee (elected or appointed) cannot be said to be a legal representative of the deceased trustee but is a person on whom the interest of the Trust property devolves, making the provisions of Order 22 Rule 10; as it applies to him.

But, in G.F.F. Foulkes v. A.S. Suppan Chettiar, AIR 1951 Mad 296, it was held as under:

  • “When a suit is brought by several persons in a representative capacity, and if one of them dies, the suit does not abate because, the right to represent others of a class is not right which ipso facto survives to the legal representatives of the deceased party. The source of that right is the order of the Court permitting the party to represent others. In such a contingency, namely, the death of one of the parties to whom originally permission was granted to institute a suit in a representative capacity, it is for the Court to decide whether the suit can be allowed to be continued by the surviving person or persons or whether other persons should be joined. The proper procedure , in a case like this, is for the remaining person or persons to apply to the Court for directions and it is for the Court to decide whether it will permit the remaining person or persons to whom the original sanction was given to continue to prosecute or defend the suit or appeal or it will give directions to bring on record additional person or persons.”

In a subsequent suit, Ram Kumar v. Jiwanlal, AIR 1960 Mad 288, the Madras High Court took a liberal view. It was held in this decision that a representative suit does not abate on the death of the representative as he or she can be substituted by another member of the plaintiff on defendant. (See also: Raja Anand Rao v. Ramdas Daduram, AIR 1921 PC 123, State of Rajasthan v. Mst. Parwati Devi, AIR 1966 Raj 210).


Read in this Cluster:

Civil Procedure Code

Power of attorney

Title, ownership and Possession

Principles and Procedure

Land LawsTransfer of Property Act

Evidence Act – General

Contract Act

Easement

Stamp Act

Will

Book No. 2: A Handbook on Constitutional Issues

Book No. 3: Common Law of CLUBS and SOCIETIES in India

Book No. 4: Common Law of TRUSTS in India

Is there Conflict Between Sec. 69(2) Partnership Act and Order 30 Rule 1 CPC?

Saji Koduvath, Advocate, Kottayam.

Contents in Nutshell

Rules 1 of Order 30 CPC

  • Rules 1 of Order 30 CPC provides only an enabling method to sue, or be sued, partners of a firm (both Registered and Unregistered), at the time of the accruing of the cause of action, in the name of the firm. Suit by or against a firm is suit by or against its partners.
    • Order 30 Rule 1 do not apply when suit is instituted not in the name of the firm (instead, suit by all partners).
    • When all partners are in the party array (in a suit), impleading of the firm is surplusage,
  • The purpose of using the name of the firm, in a suit, is merely to encompass all the partners (even if none of them is not named as parties to the suit).
  • Rule 3 of Order 30 provides that summons to firm shall be served either-
    • (a) upon any one or more of the partners, or
    • (b) upon any person having the control or management of the partnership business, at the principal place at which the partnership business is carried:
  • Though no partner need comes as a plaintiff (under Rules 1 of Order 30 CPC), if so demanded by the defendant, the names and details of such partners should be revealed, forthwith, by the plaintiffs (Rule 2 of Order 30).
  • Judgment/Decree in the name of the firm (without joining any partner), has the same effect as a Judgment/ decree in favour of or against all its partners.
  • The partners are not necessary parties in trial-stage, to proceed in execution against all partners. The question as to who are the persons who constitute the firm can be decided in execution proceedings (Order 21, Rule 50 CPC).

Section 69(2) Partnership Act

  • Section 69(1) Partnership Act directs that the registration of the firm is mandatory, and a condition precedent, to institute a suit by one partner against the firm or another partner.
  • Section 69(2) directs that registration of the firm is necessary for suit by or on behalf of a firm (that is, by the firm or its partners) (i) against a third party (ii) to enforce a contract with the firm.
    • Note: Sec. 69 (2) is not attracted when a suit is filed against a third party for reliefs other than enforcement of contract – like enforcement of a statutory right (trade mark) or a common law right or a right under TP Act (eviction of tenant).
  • Section 69(3) directs that registration of firm is necessary for claiming ‘set off’.
    • Though the stipulation in Section 69 (which requires registration for filing certain suits) may appear harsh, the historical basis of this provision (enacted in 1932) justifies its legitimacy (making Registration compulsory, for filing certain suits). English law, stood at that time, required compulsory registration of partnership, and contravention thereof was made punishable.
    • After independence also, the provisions as to registration of firms were not changed (so as to make Registration compulsory). Obviously, it is also because of the proclamations in Article 19(1) of the Constitution of India (in Fundamental Rights Chapter)
  • Section 69 requires that (i) all the partners at the time of the institution of the suit must be parties to the suit and (ii) their names also be in the Register of Firms, to proceed to obtain the reliefs stated in Sec. 69 (though Or. 30 r. I enables – two or more partners to sue).
  • Order 30 and Section 69(2) of the Partnership Act are independent provisions, that operate separately. They deal with different aspects.
  • Both these provisions must be complied with, when a suit is instituted (i) to enforce a contract, (ii)  by or on behalf of a firm and (iii) against a third party.
  • A partnership (that arises by an agreement to share profits or loss) cannot be put an end by a partner without consent of others; whereas in a co-ownership venture, a co-owner can transfer his interest. Because co-ownership activities are not governed by Partnership Act, Sec. 69 Bar is not applicable to the same.
  • Practical Note – Under Order 30 Rule 1, to sue a firm, either the firm be made as a party, in addition to one or more of the partners; or
    • the firm alone be made as the party, naming the (one or more) partners or any person having the control (or management of the partnership business, at its principal place of business) upon whom the summons be served by the conjuncture “by”, “through” or “represented by”; because, Order 30 rule 1 says – partners “may sue or be sued with (or, in) the name of the firm”.

Order 30, Rule I, CPC lays down

  • persons sue or be sued “with (or in) the name of the firm” should be 
  • partners at the time of the accruing of the cause of action.

Order 30 Rule 1 – Reads: Suing of partners in name of firm

  • (1) Any two or more persons claiming or being liable as partners and carrying on business in India may sue or be sued with the name of the firm (if any) of which such persons were partners at the time of accruing of the cause of action, and any party to a suit may in such case apply to the Court for a statement of the names and addresses of the persons who were, at the time of the accruing of the cause of action, partners in such firm, to be furnished and verified in such manner as the Court may direct.
  • (2) Where persons sue or are sued were partners in the name of their firm under Sub-rule (1), it shall, in the case of any pleading or other document required by or under this Code to be signed, verified or certified by the plaintiff or the defendant, suffice if such pleading or other document is signed, verified or certified by any one of such persons.

Order 30 Rule 2 – Reads: Disclosure of partners’ names

  • (1) Where a suit is instituted by partners in the name of their firm, the plaintiffs or their pleader shall, on demanding writing by or on behalf of any defendant, forthwith declare in writing the names and places of residence of all the persons constituting the firm on whose behalf the suit is instituted.
  • (2) Where the plaintiffs or their pleader fail to comply with any demand made under sub-rule (1) all proceedings in the suit may, upon an application for that purpose, be stayed upon such terms as the Court may direct.
  • (3) Where the names of the partners are declared in the manner referred to in sub-rule (1) the suit shall proceed in the same manner, and the same consequences in all respects shall follow, as if they had been named as plaintiffs in the plaint:
  • Provided that all proceedings shall nevertheless continue in the name of the firm, but the name of the partners disclosed in the manner specified in sub-rule (1) shall be entered in the decree.

Section 69 reads as under:

  • 69. Effect of Non-registration
  • 1. No suit to enforce a right arising from a contract or conferred by this Act shall be instituted in any court by or on behalf of any person suing as a partner in a firm against the firm or any person alleged to be or to have been a partner in the firm unless the firm is registered and the person suing is or has been shown in the Register of Firms as a partner in the firm.
  • 2. No suit to enforce a right arising from a contract shall be instituted in any Court by or on behalf of a firm against any third party unless the firm is registered and the persons suing are or have been shown in the Register of Firms as partners in the firm.
  • 3. The provisions of sub-sections (1) and (2) shall apply also to a claim of set-off or other proceeding to enforce a right arising from a contract, but shall not affect,—
    • (a) the enforcement of any right to sue for the dissolution of a firm or for accounts of a dissolved firm, or any right or power to realise the property of a dissolved firm, or
    • (b) the powers of an official assignee, receiver or Court under the Presidency-towns Insolvency Act, 1909 (3 of 1909) or the Provincial Insolvency Act, 1920 (5 of 1920) to realise the property of an insolvent partner.
  • 4. This section shall not apply,—
    • (a) to firms or to partners in firms which have no place of business in[the territories to which this Act extends], or whose places of business in [the said territories], are situated in areas to which, by notification under [section 56], this Chapter does not apply, or
    • (b) to any suit or claim of set-off not exceeding one hundred rupees in value which, in the Presidency-towns, is not of a kind specified in section 19 of the Presidency Small Cause Courts Act, 1882 (5 of 1882), or, outside the Presidency-towns, is not of a kind specified in the Second Schedule to the Provincial Small Cause Courts Act, 1887 (9 of 1887), or to any proceeding in execution or other proceeding incidental to or arising from any such suit or claim.

Benefits of Registration Partnership

See blog: What is Partnership, in Law? How to Sue a Firm?

Sec. 69(2) and Order 30 Rule 1 deal with different aspects and operate separately

  • Rules I of Order 30 deals with the mode or form in which the suit to be instituted. It requires that the persons suingin the name of the firm‘ should be partners at the time of the accruing of the cause of action.
  • Section 69(2) of the Partnership Act should be satisfied in order that a suit can be instituted. That is, to institute a suit (i) to enforce a contract  (ii) by or on behalf of a firm  (iii) against a third party, (a) the registration of a firm is a condition precedent, and (b) the name of the partners suing must have been shown in the Register of Firms.
  • In short, these two independent provisions must be complied, when a suit is instituted (i) to enforce a right from a contract (ii) (in a contract) with the firm and (iii) against any third party.
  • Section 69 requires that (i) all the partners at the time of the institution of the suit must be parties to the suit and (ii) their names also be in the Register of Firms- to proceed with the matters stated in Sec. 69 (though Or. 30 r. I enables – two or more partners to sue). (See: Firm of V. Ramchandraiah Gupta v. Ravula Venkat Reddy, 1970 (1) Andhra WR 243 Hansraj Manot’s (1962) 66 Cal WN 262; Sohanlal Basant Kumar vs Umraomal Chopra, 1985 (1) WLN 791.
  • Note:
    • If the partners at the time of accruing of the cause of action (to enforce a contract) and the partners at the time of instituting the suit are different, to institute a suit by or on behalf of a firm , against a third party following persons must be in the party array –
      • (i) all partners at the time of cause of action and
      • (ii) all partners at the time of filing the suit.
    • Note – Rule 1(1) of Order 30 CPC says – “with the name of the firm” and Rule 1(2) says – “in the name of their firm“.
  • The firm can be made as a party, in addition to the partners; or the firm alone be made as the party, naming the partners thereafter followed by the words – “represented by”.

Plaint must be signed by the Partners in the Register of Firms on the DATE OF THE SUIT

In M/s. Shreeram Finance Corpn. v. Yasin Khan, AIR 1989 SC 1769,  the Supreme Court has held that the plaint verified and signed by the partners as on the date of the suit who were not shown as partners in the register of firms, is not maintainable in view of S. 69(2) of the Indian Partnership Act. In para 6 of the judgment the Supreme Court has observed as follows:

  • “6. In the present case the suit filed by the appellants is clearly hit by the provisions of sub-s. (2) of S. 69 of the said Partnership Act, as on the date when the suit was filed, two of the partners shown as partners as per the relevant entries in the Register of Firms were not, in fact, partners, one new partner had come in and two minors had been admitted to the benefit of the partnership firm regarding which no notice was given to me Registrar of Firms. Thus, the persons suing, namely, the current partners as on the date of the suit were not shown as partners in the Register of Firms. In the result is that the suit was not maintainable in view of the provisions of sub-s. (2) of S. 69 of the said Partnership Act and the view taken by the Trial Court and confirmed by the High Court in this connection is correct”.

S. 69(2) directs ‘all partners’ must sue

Prior to M/s. Shreeram Finance Corpn. v. Yasin Khan, AIR 1989 SC 1769 (supra), there was difference of opinion as to ‘persons suing’ in Section 69(2) –

  • (i) it is the partners on the date of the institution of the suit. (Shanker Housing Corporation v. Mohan Devi, AIR 1978 Del 255. Also see decisions referred to therein – given below)
  • (ii) it is the partners (also) at time of the accruing of the cause of action (Bharat Sarvodaya Mills Co. Ltd. v. Mohatta Brothers, AIR 1969 Guj 178; Gandhi Company v. Krishna Glass Pvt. Ltd. (1983) 85 BomLR 179; Gurushiddayya Kalkayye Delimath v. Shah Hirachand Venechand and Co., AIR 1972 Mys 209; Sohanlal Basant Kumar v. Umraomal Chopra, 1985 (1) WLN 791)
    • The line of decisions in this way are not good law in the light of M/s. Shreeram Finance Corpn. v. Yasin Khan, AIR 1989 SC 1769.

In Shanker Hoursing Corporation v. Mohan Devi, AIR 1978 Del 255 (D.B), it is held that the expression ‘persons suing’ in Section 69(2) of the Partnership Act means “all the partners of the firm who are its partners at the time of the institution of the suit. But, under Rule I of Order 30 CPC provides that two or more partners can sue.

The contention raised in the case (the court rejected it) was the following-

  • “Rule I of Order 30 requires that the persons suing in the name of the firm should be partners at the time of the accruing of the cause of action, and, therefore, the same meaning should be given to the words “persons suing” in Section 69(2) of the Partnership Act, 1932, and the “persons suing” in requirement (b) therein means the person who were partners at the time of the accruing of the cause of action and not on the date of the institution of the suit and it is sufficient for the purposes of requirement (b) if they have been shown in the Register of Firms as partners in the firm.”

The Delhi High Court pointed out that Section 69(2), makes the registration of a firm a condition precedent to the institution of a suit by or on behalf of a firm against a third party. It deals with the question as to when a firm can sue, or be sued by, a third party in respect of a right arising from a contract, and provides certain requirements as conditions precedent for the institution of the suit, viz.. (a) that the firm is a registered firm, and (b) the persons suing are or have been shown in the Register of Firms as partners in the firm. On the other hand, Rules I and 2 of Order 30 of the Code of Civil Procedure provide the mode or form and the procedure for suits by or against a firm. In other words, the requirements in Section 69(2) should be satisfied first in order that a suit can be instituted, and then the provisions of Rules I and 2 of Order 30 are attracted as regards the mode or form in which the suit may be instituted as well as the procedure applicable to the said suit. In providing the mode Rule I prescribes a certain requirement, viz., that the persons mentioned therein must have been partners at the time of the accruing of the cause of action.

Then the court observed as under:

  • (16) Thus, the provisions in Section 69(2) of the Partnership Act and those in Rule 1 of Order 30 deal with different aspects and operate separately. The former deals with the question as to when a firm can sue or be sued by a third party in respect of a right arising from a contract and prescribes certain requirements for the same, while the latter deals with the mode or form and the procedure for suits by or against firms, and prescribes a certain requirement for the same. It would not, therefore, be correct to interpret the. words “persons suing” in Section 69(2) and the point of time at which the requirements in Section 69(2) are to be fulfilled, by referring to the provision in Rule 1 of Order 30. In our opinion, the scope and effect of the two sets of provisions may be stated thus :
  • (17) Under Section 69(2), a suit to enforce a right arising from a contract can be instituted by or on behalf of a firm against any third party only if (a) the firm is registered and (b) the persons suing, i.e., all the partners of the firm at the time of the institution of the suit, are or have been shown in the Register of Firms as partners in the firm, while under Rule I of Order 30 two or more persons who claim as partners may sue, or who are liable as partners may be sued, in the name of the firm (if any), provided such persons were partners at the time of the accruing of the cause of action. If the facts in a given case are such as to attract the applicability of the provisions in both Section 69(2) and Rule I of Order 30, the requirements in both the provisions should be fulfilled. In such a case, if a suit to enforce a right arising from a contract is to be instituted by or on behalf of a firm against any third party, the firm has to be a registered firm, and the partners ‘ of the firm as on the date of the institution of the suit must have been shown in the Register of Firms as partners in the firm, and further they must have been partners of the firm at the time of the accruing of the cause of action.
  • (18) As regards the scope and effect of Section 69(2) of the Partnership Act, at view similar to the one expressed by us above baa been taken in the following decisions, vide-
  • (1)Firm Manghoomal Jethamal v. Finn Aratmal Satramdas Air 1922 Sind 13 ;
  • (2)Pratapchand Ramchand &Co. v. Jehangiriji Air 1940 Bom 257;
  • (3)Sri Meenakshi Mills v. C. Swaminatha Mudaliar and Bros. AIR 1944 Mad 443;
  • (4)Bank of Koothathikulam v. Itten Thomas. Air 1955 Travancore-Cochin, 155.
  • (5)Dr. V. S. Bahl v. M/s. S. L. Kapur ami Co., AIR 1978 Delhi 255;
  • (6)Kesrimal v. Dalichand A.IJt. 1959 Raj 140;
  • (7)Hansraj Manot. M/s. Goraknatth Champalal Pandey, 66 C.W.N. 262;
  • (8)Firm Buta Mal Dev Raj v.-Chanan Mal and others. A.I.R. 1964 Punjab 270;
  • (9)Firm Alwar Iron Syndicate v. Union of India, AIR 1970 Raj 86,
  • (10)M/s. Badrimal Ramcharan & Co. v. M/s. Gana Kaul & Sons Air 1971 J&K 109;
  • (11)M/s. Chandrabhan Bansilal Ramratan Dass v. Municipal Council, Bikaner, AIR 1975 Raj 35 and
  • (12)Ram Kumar Shew Chandrai v. Dominion of India. AIR 1977 Cal 37.”

In Firm Buta Mai Dev Raj v. Chanan Mai, AIR 1964 Punj 270, it was pointed out that in order to institute a suit, a partnership firm must not only be a registered firm but also all the persons who are partners in the firm at the time of the institution of the suit must be, or have been, shown as such in the Register. The expression “the persons suing” in Section 69(2) must mean the partners in the firm. The use of the plural “persons” is obviously deliberate, since -while a singular may also mean the plural, the plural can never mean, singular. When a suit is instituted in the name of a firm the suit is on behalf of all the partners, and not only such of them as are shown, in the Register as such, and all the partners must be “the persons suing” contemplated in Section 69(2).

In Firm Alwar Iron Syndicate v. Union of India, AIR 1970 Raj 86, it is observed as under:

  • “6. It appears to me, however, that there is really no room for any controversy in regard to the correct meaning and purpose of Sub-section (2) of Section 69. It is well settled that a firm as such is not an entity in aw and is not a “person” within the meaning of Section 4 of the Partnership Act. Its name is therefore a mere abbreviated name of all its partners: Dulichand Laxminarayan v. Commr. of Income-tax, Nagpur, AIR 1956 SC 354. It is for this reason that special provisions have been made in Order 30, P. C. regarding suits by or against firms and persons carrying on business in names other than their own. So it is beyond doubt that even if a suit is brought in the name of a firm, it is really a suit by all its partners under the firm name. In other words, the persons suing are all the partners of the firm at the relevant date and none of them can, or obvious reasons, be left out for purposes of the suit. So it is incorrect to say that subsection (2) of Section 69 merely requires that only the person or persons actually signing the plaint on behalf of the firm should be shown in the Register of Firms as its partners. The word “persons” in the subsection has been used in the plural by design and serves an important purpose for it brings, out the real nature of a partnership firm which cannot consist of a single person. This is the view taken in –
  • Kapur Chand Bhagaji, Firm v. Laxrnan Trimbak, AIR 1952 Nag 57 and
  •  Dr. V. S. Bahal v. S. L. Kapur and Co., AIR 1956 Punj 24.
  • The decision in Dr. V. S. Bahal’s case, AIR 1956 Punj 24 does not appear to have been noticed in AIR 1959 Punj 530 on which reliance has been placed by Mr. J. P. Jain, but it has been followed in AIR 1964 Punj 270.
  • It has also been followed in Hansraj Manot v. Gorak Natb Champalal Pandey, (1962) 66 Cal WN 262 and, if I may say so with respect, these judgments lay down the correct law on the point.”

Court will have no jurisdiction to entertain a suit in violation of Section 69(1)

In Abani Kanta Pal v. Unknown, AIR 1986 Cal. 143, it is stated as under:

  • “9.In our opinion, it may be that S. 13(6) of the West Bengal Premises Tenancy Act puts an embargo on the plaintiff and does not oust the jurisdiction of the Court. A defendant in a suit for eviction may waive service of a notice under Section 13 (6). Section 69 (1) of the Partnership Act, however, stands on a different footing. The embargo that has been put on the plaintiff under sub-sections (1) and (2) of Section 69 is not for the purpose of protecting the interest of any party, but it is based on public policy. The requirements of sub-sections (1) and (2) of Section 69 cannot be waived by the defendant, and the Court is debarred from entertaining a suit ignoring the fulfilment of such requirements. So, if a firm is not registered, excepting a suit as contemplated by Section 69 (3), the Court will have no jurisdiction to entertain a suit in violation of Section 69(1). In other words, the plaint that has been filed by the plaintiff will be considered a void plaint, if it contravenes the provisions of sub-sections (1) and (2) of Section 69 of the Partnership Act. This view finds support from a decision of the Supreme Court in Loonkaran Sethia Vs. Ivan E. John, AIR 1977 S.C.336. In that case, sub sections (1) and (2) of Section 69 were involved. The Supreme Court made the following observations;
  • “A bare glance at the section is enough to show that it is mandatory in character and its effect is to render a suit by a plaintiff in respect of a right vested in him or acquired by him under a contract which he entered into as a partner of an unregistered firm, whether existing or dissolved void. In other words, a partner of an erstwhile unregistered partnership firm cannot bring a suit to enforce a right arising out of a contract falling within the ambit of Section 69 of the Partnership Act.”

Defect (not signing by Partner) Cannot be Cured by Amendment of Plaint

The plaintiff in Popular Automobiles v. Chami, was a partnership firm and the plaint is verified, signed and filed by the Manager claiming that he had been authorised by one of the partners. The Kerala High Court (1 February, 2001) relying on M/s. Shreeram Finance Corpn. v. Yasin Khan, AIR 1989 SC 1769, held that the suit was filed in violation of the mandatory provisions of S. 69(2) of the Indian Partnership Act; and therefore, the petition to amend the plaint was not sustainable.

Bar under Sec. 69 Partnership Act is absolute

  • Section 69(1) Partnership Act directs that the registration of a firm is mandatory, and a condition precedent, to institute a suit by one partner against the firm or another partner.
  • Section 69(2) directs that registration is necessary for suit by or on behalf of a firm (that is, by the firm or its partners) (i) against a third party (ii) to enforce a contract with the firm.
  • Section 69(3) directs that registration is necessary for claiming ‘set off’.

Unregistered Partnership Firm Cannot Bring A Suit for Enforcement of Contract

In Loon Koran v. Ivan E. John, AIR 1977 SC 336, it is observed as under:

  • “A bare glance at the section is enough to show that it mandatory in character and its effect is to render a suit by a plaintiff in respect of a right vested in him or acquired by him under a contract which he entered into as a partner of an unregistered firm whether existing or dissolved, void. In other words, a partner of a erstwhile unregistered partnership firm cannot bring a suit to enforce a right arising out of a contract falling within the ambit of section 69 of the Partnership Act.” (quoted in: V.A. Abdul Wahab Sahib v. Abdul Subhan Sahib, (1998) 2 MLJ 720).

A co-ownership venture is not a Partnership; It is not Affected by Sec. 69 Bar

A partnership (that arises by an agreement to share profits or loss) cannot be put an end by a partner without consent of others; whereas in a co-ownership venture, a co-owner can transfer his interest. Because co-ownership activities are not governed by Partnership Act, Sec. 69 Bar is not applicable to the same.

Bar under Section 69 to ‘Other Proceedings’ also – to Get Rent Reduced

A suit by a tenant to get the rent reduced is thus a suit to enforce a right arising out of a contract of tenancy. The suit therefore falls under Section 69 of the Partnership Act. See: Gappulal Gordhandas v. Chunilal Shyam Lal, AIR 1961 Raj 286.

No Bar to Arbitration

It is held by our Apex Court in Kamal Pushp Enterprises v. DR Construction Company, AIR 2000 SC 2676, that Section 69 of the Partnership Act has no application to proceedings before an Arbitrator; and therefore, an Arbitration and Award would not be vitiated. (But see: Jagdish Chander Gupta v. Kajaria Traders (India) Ltd., AIR 1964 SC 1882)

Bar to Claim Restoration of Benefits under S. 65 Contract Act

According to Section 65 of the Indian Contract Act, when an agreement is discovered to be void, or when a contract becomes void, any person who has received any advantage under such agreement or contract is bound to restore it, or to make compensation for it, to the person from whom he received it. Because of the bar under the provisions of Section 69 of the Partnership Act, it is found in Bijendra Prasad v. Smt. Duleshwari Devi, AIR 1998 Pat 122, that the partners of the unregistered partnership cannot claim benefits under Sec. 65 of the Contract Act.

Partnership Cannot Amend to Become a Proprietorship

S. Krishnan v. Aruna and Associates, (1979) 2 MLJ 1, it is held that a suit filed as a partnership cannot amend to become a proprietorship. It is observed as under:

  • “When once he takes up a stand that it is a partnership firm, he should stand by it. Once he takes up the position that it is a dissolved firm, equally he should be prepared to substantiate it. But he cannot have a third way out of it by bringing in a person who was a quondam partner of the unregistered firm as if he has become the proprietor thereto on dissolution. This metamorphosis is not available in law.”

The Supreme Court Haldiram Bhujiawala v. Anand Kumar Deepak Kumar, in (2000) 3 SCC 250, observed as under:

  • “The points that arise for consideration are:
  • (I)Whether Section 69 (2) bars a suit by a firm not registered on the date of suit where permanent injunction and damages are claimed in respect of a trademark as a statutory right or by invoking common law principles applicable to a passing-off action?
  • (II) Whether the words” arising from a contract” in Section 69 (2) refer only to a situation where an unregistered firm is enforcing a right arising from a contract entered into by the firm with the defendant during the course or its business or whether the bar under Section 69 (2) can be extended to any any contract referred to in the plaint unconnected with the defendants, as the source of title to the suit property?

On question No. 1 the Supreme Court held as under:

  • “(9) The question whether Section 69(2) is a bar to a suit filed by an unregistered firm even if a statutory right is being enforced or even if only a common law right is being enforced came up directly for consideration in this Court in Raptakas Brett Co. Ltd. Vs. Ganesh Property. In that case, Majumdar J.. speaking for the Bench clearly expressed the view that Section 69 (2) can not bar the enforcement by a way of a suit by an unregistered firm in respect of a statutory right or a common law right. On the facts of that case, it was held that the right to evict a tenant upon expiry of the lease was not a right ” arising from a contract” but was a common law right or a statutory right under the Transfer of Property Act. The fact that the plaint in that case referred to a lease and to its expiry, made no difference. Hence, the said suit was held not barred. It appears to us that in tht case the reference to the lease in the plaint was obviously treated as a historical fact. That case is therefore directly in point. Following the said judgment, it must be held in the presence case too that a suit is not barred by Section 69 (2) if a statutory right or a common law right is being enforced.

It is held while answering question No. 2:

  • “The above provision clearly signifies that the right that is sought to be enforced by the unregistered firm and which is barred must be a right arising out of a contract with a third party – defendant in respect of the firm’s business transactions….. The real crux of the question is that the legislature when it used the word “arising out of a contract” in Section 69(2), it is referring to a contract entered into in course of business transaction by the unregistered plaintiff firm with its customers – defendants and the idea is to protect those in commerce who deal with such a partnership firm in business. Such third parties who deal with the partners ought to be enabled to know what the names of the firm are before they deal with them in business.”

In this case our apex court pointed out as under:

  • if the firm is not registered on date of suit and the suit is to enforce a right arising out of a contract with the third party- defendant in the course of its business, then it will be open to the plaintiff to seek withdrawal of the plaint with leave and file a fresh suit after registration of the firm subject of course to the law of limitation and subject to the provisions of the Limitation Act. This is so even if the suit is dismissed for a formal defect. Section 14 of the Limitation Act will be available inasmuch as the suit has failed because the defect of non-registration falls within the words “other cause of like nature” in section 14 of the Limitation Act, 1963. See Surajmal Dagduramji Shop v. M/s. Srikishan Ram Kishan, AIR (1973) Bom. 313.”

In Ramachandraiah Gupta v. Ravula Venkat Reddy, 1971 Andhra WR. 243 (Justice O. Chinnappa Reddy) held as under:

  • “Now, a firm is not a legal entity at all, but is a mere abbreviated name for the several partners of which it consists. Ordinarily, therefore, a suit may not be brought by a firm in its own name but a suit may be brought by all the partners acting together or by some of the partners only but impleading the other partners also as parties to the suit. However Order 30, Rule 1 of the Civil Procedure Code prescribes a special procedure by which a suit may be brought in the name of the firm. It provides that any two or more persons claiming or being liable as partners and carrying on business may sue or be sued in the name of the firm of which such persons were partners at the time of the accruing of the cause of action and that in such a case it shall suffice if one of such persons signs, verifies or certifies any pleadings or document required by the Code to be signed, verified and certified by the plaintiff or the defendant. The effect of a suit instituted in the name of the firm in the manner, prescribed by Order 30, Rule 1 is as if the suit is filed by all the partners collectively. Whether the suit is filed by all the partners collectively or by some only of the partners impleading the rest as parties to the suit or whether it is filed in the name of the firm prescribed by Section 69(2) must be fulfilled. They are (1) that the firm must be registered and (2) that the persons suing are or have been shown in the Register of Firms as partners in the Firm….”

S. 69(2) – No Bar for Enforcement of a Statutory Right or a Common Law Right

Section 69(2) of the Act of 1932 is not a bar to a suit filed by an unregistered firm, if the same is for enforcement of a statutory right (like, trade mark) or a common law right or a right under TP Act (like, eviction of tenant – Govindaraja Naicker v. Sapthagiri Complex, ILR 1994 Kar 1832).).

To attract the bar of Section 69(2) of the Act of 1932, the contract in question (i) must be the one entered into by firm with the third-party defendant and (ii) must also be the one entered into by the plaintiff firm in the course of its business dealings.

  • Raptakos Brett & Co. Ltd. v. Ganesh Property: (1998) 7 SCC 184, Haldiram Bhujiawala v. Anand Kumar Deepak Kumar: (2000) 3 SCC 250. Referred to in: Shiv Developers v. Aksharay Developers, 2022 SCC OnLine SC 114.

Contract must be one in the Course of the Business Dealings

In Raptakos Brett & Co. Ltd. v. Ganesh Property, (1998) 7 SCC 184, it is held as under:

  • “23 The further and additional but equally important aspect which has to be made clear is that the contract by the unregistered firm referred to in Section 69(2) must not only be one entered into by the firm with the third-party defendant but must also be one entered into by the plaintiff firm in the course of the business dealings of the plaintiff firm with such third-party defendant.
  • 24… The real crux of the question is that the legislature, when it used the words “arising out of a contract” in Section 69(2), it is referring to a contract entered into in course of business transactions by the unregistered plaintiff firm with its defendant customers and the idea is to protect those in commerce who deal with such a partnership firm in business. Such third parties who deal with the partners ought to be enabled to know what the names of the partners of the firm are before they deal with them in business.”
  • 25 Further, Section 69(2) is not attracted to any and every contract referred to in the plaint as the source of title to an asset owned by the firm. If the plaint referred to such a contract it could only be as a historical fact. For example, if the plaint filed by the unregistered firm refers to the source of the firm’s title to a motor car and states that the plaintiff has purchased and received a motor car from a foreign buyer under a contract and that the defendant has unauthorisedly removed it from the plaintiff firm’s possession — it is clear that the relief for possession against the defendant in the suit does not arise from any contract which the defendant entered into in the course of the plaintiff firm’s business with the defendant but is based on the alleged unauthorised removal of the vehicle from the plaintiff firm’s custody by the defendant. In such a situation, the fact that the unregistered firm has purchased the vehicle from somebody else under a contract has absolutely no bearing on the right of the firm to sue the defendant for possession of the vehicle. Such a suit would be maintainable and Section 69(2) would not be a bar, even if the firm is unregistered on the date of suit. The position in the present case is not different. (Quoted in: Shiv Developers v. Aksharay Developers, 2022 SCC OnLine SC 114)

In Shiv Developers v. Aksharay Developers, 2022 SCC OnLine SC 114, it is held as under:

  • “The relevant principles, when applied to the facts of the present case, leave nothing to doubt that the transaction in question was not the one entered into by the plaintiff firm during the course of its business (i.e., of building construction); and it had been an independent transaction of sale, of the firm’s share in the suit property, to the contesting defendants. The bar of Section 69(2) is not attracted in relation to the said sale transaction. Moreover, the subject suit cannot be said to be the one for enforcement of right arising from a contract; rather the subject suit is clearly the one where the plaintiff seeks common law remedies with the allegations of fraud and misrepresentation as also of the statutory rights of injunction and declaration in terms of the provisions of the Specific Relief Act, 1963 as also the Transfer of Property Act, 1882 (while alleging want of the sale consideration). Therefore, the bar of Section 69(2) of the Act of 1932 does not apply to the present case.”

Suit by Sole (remaining) Partner Maintainable

In Gujarat Water Supply and Severage v. Sundardas Hukumatram Shivanani, AIR 1991 Guj 170, a contract was entered into by a partnership firm with the Government. One among the three partners of the firm was the plaintiff. Before filing the suit, other two partners had been retired. The plaintiff filed the suit for recovery of rights and liabilities of the dissolved firm. The High Court held that the suit was maintainable though the partnership firm was not registered.

A suit by one partner against another for damages on the grounds of the misconduct of his partner was held to be maintainable in Navinchandra Jethabhai v. Moolchand Sadaram Gindodiya, AIR 1966 Bom 111.

Registration of the Firm Must be proved by Certified Copy of Register

Nagpur High Court in Kapurchand Begaji Firm v. Laxman Triabuk, AIR 1952 Nag 57, held that the Register of Firms being a public document the requirements of Section 69(2) were to be complied with by producing a certified copy of an entry from that register; and that the oral evidence of the plaintiff-partner is not admissible as secondary evidence. The same view was taken in Chhotelal Darbarilal v. Mohammed Hussain AIR 1955 VP 44, M/s Badrimal Ramcharan and Co. v. M/s. Gama Kaul and Sons, AIR 1971 J&K 103; Sohanlal Basant Kumar vs Umraomal Chopra, 1985 (1) WLN 791.

Firm Need not be a Party

In M.S. Pearl Sound Engineer v. M/s. Poonam Chand, it was held that when the suit is instituted by all the partners, it was not necessary to implead the firm, and impleading the firm was merely a surplusage. (Referred to in: Sohanlal Basant Kumar vs Umraomal Chopra, 1985 (1) WLN 791).

Death of a Partner in the Registered Firm

In M/s Durga Das Janak Ram v. Preete Shah Sant Ram, AIR 1959 P H 530, Punjab High Court, following the decision of the Bombay High Court in Pratapchand Ramchand & Co. v. Jahangirji Bomanji, AIR 1940 Bom 237 held that the firm continued to be registered in spite of the death of one of the partners (and non-reporting of this fact to the Registrar) and the remaining partners were was entitled to institute a suit. But, in Krishna Chandra Agarwalla v. Shanti Prasad Jain, AIR 1981 Cal 199, it was held that if firm could not be maintained without the son of the deceased partner and his name did not appear in the Register of Firms, the suit filed by the firm could not be proceeded with. (See also: Maddi Sudarsanam v. Borogu Viswanadham Brothers, AIR 1955 AP 12; Sohanlal Basant Kumar vs Umraomal Chopra, 1985 (1) WLN 791).

Cause of action on dishonour of cheques & contract under Sec. 69

  • In Afsal Baker vs. Maya Printers, 2016 SCC OnLine Ker 29914, it is held that the suit on the cause of action on dishonour of cheques can be brought independent of Sec. 69 of the Partnership Act, as it is not on a ‘contract’ stated in Sec. 69.

Decree Obtained Against a Partner Cannot be Executed Against Legal Heirs

In SP Misra v. Mohd. Laiquddin Khan, (2019) 10 SCC 329, it is held that a partnership firm stands dissolved, on the death of a partner, by operation of law under Section 42(c) of the Indian Partnership Act, 1932; and therefore, the decree obtained against a partner cannot be executed against his legal heirs.

When all Partners are Necessary Parties

  • Partition of partnership property
  • Suit for settling the accounts of the dissolved firm
  • When firm constituted to take up a venture – after the completion of such venture.

Subsequent Registration Will Not Cure the Defect

In Delhi Development Authority v. Kochhar Construction Work, (1998) 8 SCC 559, following Shreeram Finance Corporation, it was held that proceedings under  the Arbitration Act were ab initio defective for the firm was not registered; and that the subsequent registration of the firm could not cure that defect. (Followed in U.P. State Sugar Corporation Ltd vs Jain Construction Co. (2004) 8 SCC 559) See also: Haldiram Bhujiawala v. Anand Kumar Deepak Kumar, 2000(3) SCC 250.

In Dwijendra Nath Singh v. Govinda Chandra, AIR 1953 Cal 497 (Dasgupta, G Ray, JJ.) the suit was brought by two persons who are described as the owners of the firm Samanta Naskar and Co. When the suit was instituted this firm had not been registered. It however was registered before the suit came to be heard. It was held following Firm Laduram Sagarmal v. Jamuna Prasad, AIR 1939 Pat 239 and Varadarajulu v. Rajmanika, AIR 1937 Mad 767, that a suit which was not maintainable by reason of non-compliance with S. 69 of the Partnership Act cannot become maintainable at a later stage by reason of registration and the subsequent registration cannot cure the initial defect.

Apex Court Impleaded Partners, Suo Moto, as Proper Parties, in eviction Case

In Richard Lee v. Girish Soni, (2017) 3 SCC 194, our Apex Court it was ruled that there was no doubt that all the partners are not necessary parties ‘form the point of view of the eviction petitioners’ and that both the firm and all its partners should be on the array of parties as proper party for properly adjudicating the issue before the Rent Controller in view of the contentions taken by the parties. The Apex Court impleaded the partners suo moto observing that the Court has a duty to see whether the presence of the proper parties would facilitate the complete determination of the matter in dispute.

Clauses impose obligations to legal heirs are opposed to public policy

In SP Misra v. Mohd. Laiquddin Khan, (2019) 10 SCC 329, it is held as under:

  • “When such legal representative are not parties to the contract, such contract cannot confer rights or impose obligations arising under it on any third party, except parties to it. No one but the parties to the contract can be entitled under it or born by it. Such principle is known as ‘Privity of Contract’. When the partnership stands dissolved by operation of law under Section 42(c) of the Indian Partnership Act, 1932, the question of execution in pursuance of the decree does not arise. There cannot be any contract unilaterally without acceptance and agreement by the legal heirs of the deceased partner. If there are any clauses in the agreement, entered into between the original partners, against the third parties, such clauses will not bind them, such of the clauses in the partnership deed, which run contrary to provisions of Indian Partnership Act, 1932, are void and unenforceable. Such clauses are also opposed to public policy.”

Execution Against a Partner who was not a Party in Trial

In J.K. Jute Mills Co. Ltd. v. Firm Birdhichand Sumermal (Mukerji, Beg, Agarwala, JJ) AIR 1958 All 176, while interpreting Order 21, Rule 50 CPC, Beg, J. (concurred by Mukerji, J.) referring earlier judgments, it was held that all the partners were not necessary parties in trial, to proceed in execution. Beg, J. summed up his Judgment observing the following:

  • The decree can be satisfied not only from the property of the partnership, but also from the personal property of each of the partners.
  • The question as to who are the persons who constitute the firm can be decided in execution proceedings.
  • Order 21, Rule 50 is designed to define the scope and to lay down the mode and method of such an enquiry.
  • Effect of Contrary View: If a partner (not impleaded or served) succeeds when re-agitate in execution proceedings, he would be fully bound by the decree which has already been passed in the suit against the firm, yet according to the order of the same Court at the execution stage in the same suit, he would not be so bound.
  • A contrary view might result in a conflict between the findings at the trial and at the execution stage in the same case.
  • Further, in such a case he would have to be held to be immune from personal liability as a partner even though his property as a partner would be liable for the satisfaction of the decree under Order 21, Rule 50(1) (a).
  • Again, if a partner not impleaded or served in the suit is allowed to re-agitate the whole matter on merits, then it would be open to him to raise again the same pleas which were raised by other partners who were served in the suit.
  • If the decision in the suit is not to be treated as res judicata against all partners, then it would be open to the same Court at the execution stage to take a different view of the same plea.
  • The result would be that on the same point there would be two conflicting findings at two stages of the same case.
  • Moreover, as a result of his objection at the execution stage, the claim might be found to be good against the firm only partially, even though the decree in the suit might postulate the liability in respect of the entire claim.
  • The contrary view might result not only in a conflict between the decree in the suit and the order in execution proceedings in the same suit, but also in a conflict between various orders at the execution stage itself.
  • Thus, where the number of partners who had not been served in the proceedings and against whom applications under Sub-rule (2) might be given is a very large and they are allowed to re-agitate the whole matter, the result would be that each time a fresh application against each of such persons is made, fresh objections might be taken.
  • If this procedure is allowed, then there would neither be any consistency in findings nor would there be any finality of decisions in the same matter. The situation thus created would be a highly embarrassing and confusing one.
  • If collusion, the matter has to be re-agitated either by a separate suit to have the decree set aside or by reviving the proceedings in the same suit itself.
  • The Legislature has, also, provided some safeguard by making the leave of the Court necessary for proceedings under Sub-rule 2.
  • Where facts are such as to raise the suspicion of collusion between the parties, the Court may refuse such permission. The enquiry contemplated against a person proceeded against under Sub-rule (2) was of a restricted character.

Order 21 Rule 50 CPC Reads As Under:

“50. Execution Of Decree Against Firm.

  • (1) Where a decree has been passed against a firm, execution may be granted-
    • (a) against any property of the partnership;
    • (b) against any person who has appeared in his own name under rule 6 or rule 7 of Order XXX or who has admitted on the pleadings that he is, or who has been adjudged to be, a partner;
    • (c) against any person who has been individually served as a partner with a summons and has failed to appear:
  • Provided that nothing in this sub-rule shall be deemed to limit or otherwise affect the provisions of section 30 of the Indian Partnership Act, 1932 (9 of 1932).
  • (2) Where the decree-holder claims to be entitled to cause the decree to be executed against any person other than such a person as is referred to in sub-rule (1), clauses (b) and (c), as being a partner in the firm he may apply to the Court which passed the decree for leave, and where the liability is not disputed, such court may grant such leave, or, where such liability is disputed, may order that the liability of such person be tried and determined in any manner in which any issue in a suit may be tried and determined. 
  • (3) Where the liability of any person has been tried and determined under sub-rule (2) the order made thereon shall have the same force and be subject to the same conditions as to appeal or otherwise as if it were a decree. 
  • (4) Save as against any property of the partnership, a decree against a firm shall not lease, render liable or otherwise affect any partner therein unless he has been served with a summons to appear and answer. 
  • (5) Nothing in this rule shall apply to a decree passed against a Hindu Undivided Family by virtue of the provision of rule 10 of Order XXX.”

End Notes

In Sohanlal Basant Kumar v. Umraomal Chopra, 1985 (1) WLN 791, after referring various previous decisions the Division Bench of the Rajasthan High Court (D P Gupta, K Lodha, JJ.) came to the following conclusions:

  • A firm is not a legal entity at all but is the collective term or an abbreviated name for all the persons who are partners thereof.
  • All such persons who have entered into a partnership with one another are individually called partners and collectively they are called a firm and the name under which their business is carried on is called the firm name.
  • Ordinarily, a suit may not be brought by a firm in its own name but a suit may be filed by all the partners acting together or by some of the partners only, but impleading the remaining partners also as parties to the suit.
  • However, Order 30 Rule 1 of the Code of Civil Procedure prescribes a special procedure by which a suit may be brought in the name of the firm.
  • Order 30 Rule 1 of the Code of Civil Procedure enables two or more persons, claiming or being liable as partners and carrying on business in partnership, to sue or be sued in the name of the firm, of which such persons are partners at the time of the accrual of the cause of action.
  • Any party to a suit, in such a case, may apply to the court for a statement of the names and addresses of the persons who were at the time of the accrual of the cause of action partners in such firm.
  • Where persons sue or are sued as partners in the name of the firm, it shall suffice if any of the partners may sign, verify or certify any pleadings or other documents required under the Code of Civil Procedure to be signed, verified or certified by the plaintiff or the defendant, as the case may be.
  • If a demand is made as mentioned above, in the case of a suit instituted by the partners in the name of the firm, the plaintiffs shall forthwith declare in writing the names and places of residence of all partners constituting the firm on whose behalf the suit is instituted.
  • Thus, there can be no doubt that a suit brought in the name of the firm is actually one by all the persons who were partners of the firm at the time of the institution of the suit.
  • Thus although the firm is not a legal entity, yet the provisions of Order 30 Rules 1 and 2 C.P.C. enable several persons doing business as partners to sue or be sued in the name of the firm.
  • The effect of a suit instituted in the name of the firm in the manner prescribed by Order 30 Rule 1 C.P.C. is as if the suit is filed by all the persons collectively.
  • Whether the suit is filed by all the partners collectively or by some only of the partners impleading the rest as parties to the suit or whether it is filed in the name of the firm by one or more partners in the manner indicated by Order 30 rule I C.P.C. the conditions prescribed by Section 69(2) must be fulfilled.
  • They are:
    • (1) that the firm must be registered; and
    • (2) that the persons suing are or have been shown in the Register of Firms as partners in the Firm.
  • The second condition requires that the names of the persons suing are presently shown or have been previously shown in the Register of Firm as partners in the firm. That appears to fallow pliantly from the provisions of Section 69(2).
  • The use of the conjunction ‘and’ shows that both the aforesaid conditions must exist together on the date of the institution of the suit.
  • As a matter of fact, these two requirements constitute the conditions precedent to the institution of the suit.
  • It may be pointed out that merely filing a statement under Section 58(1) of the Act in the office of the Registrar of Firms in the prescribed form, giving the particulars of the partnership firm and its partners together with the prescribed fee would not be enough for the fulfillment of the aforesaid conditions.
  • A certificate of registration in the prescribed form should be made available to the partners of the firm and an entry of the statement filed under Section 58(1) should be recorded by the Registrar in the Register of Firms before the institution of the suit.
  • Thus, even if the certificate of registration is made available, yet the second requirement of Sub-section (2) of Section 69 cannot be fulfilled merely by sending or delivering to the Registrar of Firms the statement required by Section 58, but it must also be shown that an entry of the statement so furnished was made by the Registrar in the Register of Firms before the date of the institution of the suit.
  • Similar is the position of a statement sent to the Registrar under Section 65 of the Act intimating the alterations or changes occurring in the constitution of the firm on account of addition, death or retirement of some of the partners.
  • Use of the expression ‘person suing” in Section 69(2) of the Act is significant.
  • Ordinarily a singular used in an enactment includes a plural, but the use of the word ‘persons’ in the aforesaid provision indicates that the legislature intended to refer to all those persons who are the partners of the firm at the time of the institution of the suit.
  • The reason is simple, as all these persons who desire to obtain a decree in their favour in a suit must become plaintiffs in the suit and all those persons against whom a decree is to be passed must similarly be made defendants in the suit.
  • When the suit is filed by or on behalf of the partnership firm, either all the partners of the firm should individually be named as plaintiffs in the suit or some of them maybe named as plaintiffs, while the remaining partners may be named as proforma defendants in the plaint.
  • Another alternative mode has been provided by Order 30 Rule 1 C.P.C. in such cases and the suit may be filed in the name of the firm, which name collectively represents all the partners of the firm at the time of institution of the suit.
  • Such a suit filed in the name of the firm shall be deemed to be a suit on behalf of all the partners of the firm.
  • The other limb of the requirement contained in Sub-section (2) of Section 69 is that all such persons who are partners of the firm at the time of the institution of the suit must be or have been shown in the Register of Firms as partners of the plaintiff firm.
  • The expression “is or have been” refers to such persons whose names were entered in the Register of Firms as partners in the firm at the time of accrual of the cause of action and continues to remain so entered in the Register of Firms at the time of the institution of the suit. (It stands contrary to M/s. Shreeram Finance Corpn. v. Yasin Khan, AIR 1989 SC 1769.)
  • Thus either the persons whose names were entered in the Register of Firms as partners in the firm at the time of the accrual of cause of action and continued to remain so entered therein until the institution of the suit or persons whose names were entered in the Register of Firms as partners of the firm at the time of the institution of the suit could maintain a suit in the name of the firm or on behalf of the firm.
  • It has also been held in some of the cases that all the persons whose names were entered in the Register of Firms on the date of the institution of the suit could file a suit notwithstanding the fact that the names of some other persons also find place in the Register of Firms as partners of the firm, who have either died or have since retired and thus ceased to be partners of the firm at the time of the institution of the suit.
  • The crux of the matter is that the names of all those persons, who continued to hold together as partners of the firm at the time of the institution of the suit must be shown to be entered in the Register of Firms on the date of the institution of the suit.
  • If the relevant entry in the Register of Firms containing some other names of persons who have either died or have retired from the partnership, the same would not affect the maintainability of the suit, in as much as the suit in the name of the firm could be filed only by or on behalf of the surviving partners of the firm.
  • But if the name of one or more of the existing partners of the firm at the time of institution of the suit does not find place in the Register of Firms on that date, then the suit by or on behalf of the partnership firm is not maintainable.
  • It is also clear that no oral evidence can be taken for the purpose of deciding as to who were the partners of the plaintiff firm at the time of the institution of the suit and the names of the persons suing must be shown in the Register of Firm as partners of the plaintiff firm at the time of the institution of the suit, as the suit in the name of the firm is virtually a suit by all the partners of the firm and in order to prove the fact as to who were the partners of the plaintiff firm at the time of the institution of the suit, the only evidence admissible is a certified copy of the relevant entry in the Register of Firms.
  • Thus the only possible interpretation to be placed on the expression ‘are or have been shown in the Register of Firms’ could be the persons suing must either be presently shown in the Register of Firms as partners of the firm at the time of the institution of the suit or they must have been earlier shown in the said Register of Firms as partners of the firm, no other interpretation is possible so as to give a rational meaning to the provision.

Read in this Cluster:

Civil Procedure Code

Power of attorney

Title, ownership and Possession

Principles and Procedure

Land LawsTransfer of Property Act

Evidence Act – General

Contract Act

Easement

Stamp Act

Will

Book No. 2: A Handbook on Constitutional Issues

Book No. 3: Common Law of CLUBS and SOCIETIES in India

Book No. 4: Common Law of TRUSTS in India

What is Partnership, in Law? How to Sue a Firm?

Saji Koduvath, Advocate, Kottayam

Synopsis & Key Takeaways

General

  • ‘Partnership’ is the relation between partners under an agreement to share profits in a business.
  • A ‘Firm’ is the collection of partners (of the Partnership).
  • A firm is not a juristic person.
  • In law, it is a compendious name for all the partners.
  • A partnership deed is not necessary to form a partnership.
  • Registration of partnership (before the Registrar of Firms) is also not necessary.
  • The liability of each partner is joint and several.

Order 30 CPC

  • Rule 1 of Order 30 CPC provides only an enabling method to sue, or be sued, partners of a firm (both Registered and Unregistered), at the time of the accruing of the cause of action, in the name of the firm. Suit by or against a firm is suit by or against its partners.
    • Order 30 Rule 1 do not apply when suit is instituted not in the name of the firm (instead, suit by all partners).
    • One partner alone can sue, or be sued, in the firm name. Still, the decree binds all partners.
    • When all partners are in the party array (in a suit), impleading of the firm is surplusage,
  • The purpose of using the name of the firm, in a suit, is merely to encompass all the partners (even if none of them is not named as parties to the suit).
  • Though no partner need comes as a plaintiff (under Rules 1 of Order 30 CPC), if so demanded by the defendant, the names and details of such partners should be revealed, forthwith, by the plaintiffs (Rule 2 of Order 30).
  • Rule 3 of Order 30 provides that summons to firm shall be served either-
    • (a) upon any one or more of the partners, or
    • (b) upon any person having the control or management of the partnership business, at the principal place at which the partnership business is carried:
  • Judgment/Decree in the name of the firm (without joining any partner), has the same effect as a Judgment/ decree in favour of or against all its partners.
  • The partners are not necessary parties in trial-stage, to proceed in execution against all partners. The question as to who are the persons who constitute the firm can be decided in execution proceedings (Order 21, Rule 50 CPC).

Section 69 Partnership Act

  • Section 69(1) Partnership Act directs that the registration of the firm is mandatory, and a condition precedent, to institute a suit by one partner against the firm or another partner.
  • Section 69(2) directs that registration of the firm is necessary for suit by or on behalf of a firm (i) against a third party (ii) to enforce a contract with the firm.
    • Note: Sec. 69 (2) is not attracted when a suit is filed against a third party for reliefs other than enforcement of contract – like enforcement of a statutory right (trade mark) or a common law right or a right under TP Act (eviction of tenant) or cause of action on dishonour of cheques.
  • Section 69(3) directs that registration of firm is necessary for claiming ‘set off’.
    • Though the stipulation in Section 69 (which requires registration for filing certain suits) may appear harsh, the historical basis of this provision (enacted in 1932) justifies its legitimacy. English law, stood at that time, required compulsory registration of partnership, and contravention thereof was made punishable.
    • After independence also, the provisions as to registration of firms were not changed. Obviously, it is also because of the proclamations in Article 19(1) of the Constitution of India (in Fundamental Rights Chapter).
  • Section 69 requires that (i) all the partners at the time of the institution of the suit must be parties to the suit and (ii) their names also be in the Register of Firms, to proceed to obtain the reliefs stated in Sec. 69 (though Or. 30 r. I enables – two or more partners to sue).
  • Order 30 and Section 69(2) of the Partnership Act are independent provisions, that operate separately. They deal with different aspects.
  • Both these provisions must be complied with, when a suit is instituted (i) to enforce a contract, (ii)  by or on behalf of a firm and (iii) against a third party.
  • A partnership (that arises by an agreement to share profits or loss) cannot be put an end by a partner without consent of others; whereas in a co-ownership venture, a co-owner can transfer his interest. Because co-ownership activities are not governed by Partnership Act, Sec. 69 Bar is not applicable to the same.

Practical Note

  • Under Order 30 Rule 1, to sue a firm, either the firm be made as a party, in addition to one or more of the partners; or
  • the firm alone be made as the party, naming the (one or more) partners or any person having the control (or management of the partnership business, at its principal place of business) upon whom the summons be served by the conjuncture “by”, “through” or “represented by”; because, Order 30 rule 1 says – partners “may sue or be sued with (or, in) the name of the firm”.

Part I

Partnership Definition

Section 4 of the Indian Partnership Act, 1932, defines partnership as under:

  • 4. Definition of ‘partnership’, ‘partner’, ‘firm’ and ‘firm name’
  • ‘Partnership’ is the relation between persons who have agreed to share the profits of a business carried on by all or any of them acting for all.
  • Persons who have entered into partnership with one another are called individually ‘partners’ and collectively a ‘firm’, and the name under which their business is carried on is called the ‘firm name’.

‘Partnership’ and ‘Firm’ in Law

  • ‘Partnership’ is the relation of persons under an agreement to share profits in a business.
  • A ‘Firm’ is the collection of partners (of the Partnership).

Elements of Partnership

From the above definition, it comes out that the following are the essential elements of a Partnership:

  • (1) Contract,
  • (2) two or more persons,
  • (3) business,
  • (4) object of sharing profits and
  • (5) business by all or any of them acting for all.

Co-ownership and Partnership: Distinction

Characteristics of a partnership, qua the Co-ownership, are the following:

  • Partnership arises by an agreement to share profits or loss.
  • It cannot be put an end by a partner without consent of others.
  • A partner cannot transfer his interest in partnership, of his own.

The basic distinction between co-ownership and partnership is laid down in Dr. Ramji Singh Properties v. The Debts Recovery Tribunal, 2013 SCC OnLine All 13873, as under:

  • The co-ownership is not necessarily the result of an agreement while the partnership is the result of an agreement.
  • The concept of involvement of community of profits or loss is not attached with the concept of co-ownership.
  • A co-owner can, without consent of others, transfer or discard his interest, but the result of the agreement for forming a firm does not allow a partner to transfer or discard his interest, unilaterally.

No Written or Registered Document is Needed to Contribute Land to Firm

In Dr. Ramji Singh Properties v. The Debts Recovery Tribunal, 2013 SCC OnLine All 13873, the decision, Firm Ram Sahay Mall Rameshwar Dayal v. Bishwanath Prasad, AIR 1963 Pat. 221, was referred which said as under:

  • “The legal position, therefore, appears to be that no written or registered document is necessary for an individual to contribute any land or immovable property as a contribution against his share of the capital of a new partnership business. The same view was taken by a bench of the Calcutta High Court in Prem Raj Brahmin v. Bhani Ram Brahmin, ILR (1946) 1 Cal 191. It was held that a written document, and, consequently registration, is not necessary to bring in the separate properties of the partners into the partnership stock, and by virtue of Sections 14 and 46 of the Indian Partnership Act and certain provisions of the Indian Contract Act, they become the properties of the firm as soon as the partners intend to so bring them in and Treat them as such. It was further laid down by their Lordships that this sort of contribution or transfer is hot prohibited by the Transfer of Property Act, 1882 or the Indian Registration Act, 1908.”

Maximum Number of Partners in a Partnership is 50

Indian Partnership Act, 1932 does not limit the number of partners in a firm. 

  • Sec. 464 of the Companies Act, 2013 provided that the maximum number of partners should not exceed one hundred; and it was left to the Government to fix the maximum (by rules). Rule 10 of the Companies (Miscellaneous) Rules, 2014, fixed the the maximum number partners as 50.
  • Under the erstwhile Companies Act, 1956, maximum partners allowed in a partnership firm was 10 persons in a banking business; and 20 persons in other business.

Sec. 464 of the Companies Act, 2013 reads as under:

  • Prohibition of association or partnership of persons exceeding certain number:
  • (1) No association or partnership consisting of more than such number of persons as may be prescribed shall be formed for the purpose of carrying on any business that has for its object the acquisition of gain by the association or partnership or by the individual members thereof, unless it is registered as a company under this Act or is formed under any other law for the time being in force:
  • Provided that the number of persons which may be prescribed under this sub-section shall not exceed one hundred.
  • (2) Nothing in sub-section (1) shall apply to—
  • (a) a Hindu undivided family carrying on any business; or
  • (b) an association or partnership, if it is formed by professionals who are governed by special Acts.
  • (3) Every member of an association or partnership carrying on business in contravention of sub-section (1) shall be punishable with fine which may extend to one lakh rupees and shall also be personally liable for all liabilities incurred in such business.

Kinds of Partnership (on duration)

  • i. At will (when no fixed period is prescribed for the expiration)
  • ii. Partnership for a fixed period

Kinds of Partners

  • Active/managing partners
  • Sleeping/Dormant partners
  • Nominal partner (partner only by his name who has no real interest in the firm)
  • Partner in profit only: (He is not liable for any)
  • Minor partner (He will share the profit but his liability will be limited)
  • Partner by estoppel (If one represented himself to be the partner, he may be estopped from denying the status)

Status of Partners in a FirmAgent

Section 18 onwards declares Status of Partners in a Firm. They read as under:

Section 18: Partner to be Agent of the Firm.

  • Subject to the provisions of this Act, a partner is the agent of the firm for the purposes of the business of the firm.

Property purchased in the name of one Partner

Property purchased in the name of one Partner can be parnership property if the accounts reveal it. Merely because a property of a partner is used for partnership business, it will not become partnership property.

Power of Attorney executed by a Partner authorizing an Individual Bind the Firm.

Under S. 18 of the Act a partner is an agent of the firm.  Power of Attorney signed by one partner will bind the firm. In Purushottam Umedbhai v. Manilal and Sons, AIR 1961 SC 325 our Apex Court held as follows:

  • “One of the partners Manubhai Maganbhai Amin was the Manager of the firm Manilal & Sons. He had executed a Power of Attorney in favour of four persons including one Dunderdale. By this Power he authorized any one of these persons to sue for recovery of moneys due to the firm from the firm Purushottam Umedbhai & Co., the appellant. It also empowered these persons to appear and to represent the firm in any court, in any jurisdiction – civil, criminal, insolvency, original, appellate or otherwise-and before any official in any suit or proceeding or matter and to make, sign, verify, present and file any plaint. Dunderdale had signed and verified the plaint in the present case. We have no doubt, on a perusal of the Power of Attorney, that it authorized Dunderdale to file the plaint on behalf of the firm Manilal & Sons and also to verify it. It was suggested that this was a Power of Attorney by Manubhai Maganbhai Amin for himself and not for the firm of Manilal & Sons. As we understand the Power of Attorney that is not so. No doubt the Power of Attorney is not signed by all the partners of Manilal & Sons but only by Manubhai Maganbhai Amin. In our opinion, it was not necessary that the Power should have been signed by all the partners of the firm because Manubhai Maganbhai Amin was the manager of the firm. Under S. 18 of the Act a partner is an agent of the firm for the purposes of the business of the firm. Manubhai Maganbhai Amin was therefore the agent of the firm as well as its manager. It is to be noticed that under s. 19(2) of the Act instances are stated where, in the absence of any usage or custom of trade to the contrary, the implied authority of a partner does not empower him to do matters mentioned in cls. (a) to (h). It is significant that in these clauses there is no prohibition to a partner executing a Power of Attorney in favour of an individual authorizing him to institute a suit on behalf of the firm. In these circumstances, it cannot be said that at the time the plaint was filed it was defective because the Power of Attorney in favour of Dunderdale was not a Power of Attorney on behalf of the firm and its partners. As the High Court has pointed out, there is on the record now Powers of Attorney on behalf of all the partners of the firm.”

Section 19 Implied Authority of Partner as Agent of the Firm.

  • (1) Subject to the provisions of section 22, the act of a partner which is done to carry on, in the usual way, business of the kind carried on by the firm, binds the firm.
  • The authority of a partner to bind the firm conferred by this section is called his “implied authority”.
  • (2) In the absence of any usage or custom of trade to the contrary, the implied authority of a partner does not empower him to –
  • (a) submit a dispute relating to the business of the firm to arbitration,
  • (b) open a banking account on behalf of the firm in his own name,
  • (c) compromise or relinquish any claim or portion of a claim by the firm,
  • (d) withdraw a suit or proceeding filed on behalf of the firm,
  • (e) admit any liability in a suit or proceeding against the firm,
  • (f) acquire immovable property on behalf of the firm,
  • (g) transfer immovable property belonging to the firm, or
  • (h) enter into partnership on behalf of the firm.

Section 20 Extension and Restriction of Partner’s Implied Authority.

  • The partners in a firm may, by contract between the partners, extend or restrict the implied authority of any partner.
  • Notwithstanding any such restriction, any act done by a partner on behalf of the firm which falls within his implied authority binds the firm, unless the person with whom he is dealing knows of the restriction or does not know or believe that partner to be a partner.

Section 21 Partner’s Authority in an Emergency.

  • A partner has authority, in an emergency, to do all such acts for the purpose of protecting the firm from loss as would be done by a person of ordinary prudence, in his own case, acting under similar circumstances, and such acts bind the firm.

Section 22 Mode of Doing Act to Bind Firm.

  • In order to bind a firm, an act or instrument done or executed by a partner or other person on behalf of the firm shall be done or executed in the firm-name, or in any other manner expressing or implying an intention to bind the firm.

Section 23 Effect of Admission by a Partner.

  • An admission or representation made by a partner concerning the affairs of the firm is evidence against the firm, it is made in the ordinary course of business.

Section 24 Effect of Notice to Acting Partner.

  • Notice to a partner who habitually acts in the business of the firm of any matter relating to the affairs of the firm operates as notice to the firm, except in the case of a fraud on the firm committed by or with the consent of that partner.

Section 25 Liability of a Partner for Acts of the Firm.

  • Every partner is liable jointly with all the other partners and also severally, for all acts of the firm done while he is a partner

Section26: Liability of the Firm for Wrongful Acts of a Partner.

  • Where, by the wrongful act or omission of a partner acting in the ordinary course of the business of a firm or with the authority of his partners, loss or injury is caused to any third party, or any penalty is incurred, the firm is liable therefor to the same extent as the partner.

Part II

Suit Against Firm or Partners

The liability of each partner is unlimited, under Sec. 25. There being joint and several liability, suit can be filed invoking Order 1 Rule 6, C.P.C.

Order 1 Rule 6 reads as under:

  • “The plaintiff may at his option, join as parties to the same suit all or any of the persons severally, or jointly and severally, liable on anyone contract, including the parties to bills of exchange, hundis and promissory notes”. 

Section 42 of the Indian Contract Act states as under:

  • “When two or more persons have made a joint promise, then, unless a contrary intention appears by the contract, all such persons, during their joint lives, and, after the death of any of them, his representative jointly with the survivor or survivors, and, after the death of the last survivor the representatives of all jointly, must fulfil the promise.”

Order 30 Rule 1: Suing of partners in name of firm

  • (1) Any two or more persons claiming or being liable as partners and carrying on business in India may sue or be sued with the name of the firm (if any) of which such persons were partners at the time of accruing of the cause of action, and any party to a suit may in such case apply to the Court for a statement of the names and addresses of the persons who were, at the time of the accruing of the cause of action, partners in such firm, to be furnished and verified in such manner as the Court may direct.
  • (2) Where persons sue or are sued were partners in the name of their firm under Sub-rule (1), it shall, in the case of any pleading or other document required by or under this Code to be signed, verified or certified by the plaintiff or the defendant, suffice if such pleading or other document is signed, verified or certified by any one of such persons.

Rule 1 of Order 30 allows the partners to sue or be sued in the name of the firm which they were a part of the firm when the cause of action arose (Bharat Sarvoday Mills Co. Limited v. Mohatta Brothers, AIR 1969 Guj 178).

Characteristics of a firm

  • A firm is not a juristic person.
  • It is a compendious name for all the partners.
  • The purpose of using the name of the firm is merely to encompass all the partners (even if all of them are not named).
  • Rules 1 of Order 30 CPC provides only an enabling method to sue, or be sued, partners of a firm (both Registered and Unregistered), at the time of the accruing of the cause of action, in the name of the firm.
    • Order 30 Rule 1 do not apply when suit is instituted not in the name of the firm (instead, suit by all partners).
    • When all partners are in the party array (in a suit), impleading of the firm is surplusage,
  • The purpose of using the name of the firm, in a suit, is merely to encompass all the partners (even if none of them is not named as parties to the suit).
  • Though no partner need comes as a plaintiff (under Rules 1 of Order 30 CPC), if so demanded by the defendant, the names and details of such partners should be revealed, forthwith, by the plaintiffs (Rule 2 of Order 30).
  • Judgment/Decree in the name of the firm (without joining any partner), has the same effect as a Judgment/ decree in favour of or against all its partners.
  • The partners are not necessary parties in trial-stage, to proceed in execution against all partners. The question as to who are the persons who constitute the firm can be decided in execution proceedings (Order 21, Rule 50 CPC).

Therefore, it is clear:

  • A firm can sue or be sued in its name of the firm.
  • Pleadings can be signed by any one of the partners.
  • One partner alone can sue, or be sued, in the firm name (AIR 1931 Sind 121). Still, the decree binds all partners.
  • Even if all the partners are made parties to the suit, it can be taken that they represent the firm.

The Delhi High Court held in Shanker Hoursing Corporation v. Mohan Devi, AIR 1978 Del 255 (D.B), as under:

  • “(15) Order 30 of the Code of Civil Procedure was added newly in the Code of Civil Procedure, 1908. Normally, when a person wishes to obtain a decree against several persons, or when several persons wish to obtain a decree against a person, al1 the said persons must be made parties to the suit. Similarly, when a person makes a promise to more than one person, the right to enforce the promise rests with them all under the provisions of Section 45 of the Indian Contract Act, so that all of them are necessary parties to a suit to enforce the promise. It was, therefore, held in some decisions under the old Code of 1882 which did not contain any provisions corresponding to the present Order 30, that in suits by or against firms, all the partners of the firm were necessary parties. It was to enable two or more partners alone to sue or be sued, as a kind of exception to the provisions of Section 45 of the Contract Act, that the present provisions in Order 30 were introduced in the Code of 1908. It is, however, provided in Rule I of Order 30 that any two or more persons claiming or being liable as partners may sue or be sued in the name of the firm (if any) of which such persons were partners aft the time of the accruing of the cause of action. As stated by us earlier, a firm is not under the law a juristic person, but is a compendious name for all the persons who are members of the firm (partners). The effect of using the name of the firm, as provided in Rule I, is merely to bring all the partners before the Court and the procedure indicated in Rules 1 and 2 of Order 30 is only a convenient method for showing the persons who constituted the firm at the time of the accruing of the cause of action, and a decree in favour of or against a firm, in the name of the firm, has the same effect as a decree in favour of or against all the partners. The various rules of Order 30 make this clear. Rule 1 of Order 30, in providing the mode or form of the suit, prescribes a requirement that the two or more persons who, claiming or being liable as partners, sue or be sued in the name of the film must be persons who were partners at the time of the accruing of the cause of action.

Order 30 Rule 2. Disclosure of partners’ names

  • (1) Where a suit is instituted by partners in the name of their firm, the plaintiffs or their pleader shall, on demanding writing by or on behalf of any defendant, forthwith declare in writing the names and places of residence of all the persons constituting the firm on whose behalf the suit is instituted.
  • (2) Where the plaintiffs or their pleader fail to comply with any demand made under sub-rule (1) all proceedings in the suit may, upon an application for that purpose, be stayed upon such terms as the Court may direct.
  • (3) Where the names of the partners are declared in the manner referred to in sub-rule (1) the suit shall proceed in the same manner, and the same consequences in all respects shall follow, as if they had been named as plaintiffs in the plaint:
  • Provided that all proceedings shall nevertheless continue in the name of the firm, but the name of the partners disclosed in the manner specified in sub-rule (1) shall be entered in the decree.

Names of the Partners disclosed shall be entered in the Decree

Though the suit can be proceeded without joining all partners, proviso makes it clear that ‘the name of the partners disclosed in the manner specified in sub-rule (1) shall be entered in the decree’.

Order 30 Rule 3. Service

  • Where persons are sued as partners in the name of their firm, the summons shall be served either-
  • (a) upon any one or more of the partners, or
  • (b) at the principal place at which the partnership business is carried on within India upon any person having, at the time of service, the control or management of the partnership business, there, as the Court may direct; and such service shall be deemed good service upon the firm so sued, whether all or any of the partners are within or without India:
  • Provided that, in the case of a partnership which has been dissolved to the knowledge of the plaintiff before the institution of the suit, the summons shall be served upon every person within India whom it is sought to make liable.

Order 30 Rule 4. Rights of suit on death of partner

  • (1) Notwithstanding anything contained in section 45 of the Indian Contract Act, 1872 (9 of 1872) where two or more persons may sue or be sued in the name of a firm under the foregoing provisions and any of such persons dies, whether before the institution or during the pendency of any suit, it shall not be necessary to join the legal representative of the deceased as a party to the suit.
  • (2) Nothing in sub-rule (1) shall limit or otherwise effect any right which the legal representative of the deceased may have-
  • (a) to apply to be made a party to the suit, or
  • (b) to enforce any claim against the survivor or survivors.

Order 30 Rule 5. Notice in what capacity served

  • Where a summons is issued to a firm and is served in the manner provided by rule 3, every person upon whom it is served shall be informed by notice in writing given at the time of such service, whether he is served as a partner or as a person having the control or management of the partnership business, or in both characters, and, in default of such notice, the person served shall be deemed to be served as a partner.

Order 30 Rule 6. Appearance of partners.

  • Where persons are sued as partners in the name of their firm, they shall appear individually in their own names, but all subsequent proceedings shall, nevertheless, continue in the name of the firm.

Order 30 Rule 7. No appearance except by partners.

  • Where a summons is served in the manner provided by rule 3 upon a person having the control or management of the partnership business, no appearance by him shall be necessary unless he is a partner of the firm sued.

Order 30 Rule 8. Appearance under protest

  • (1) Any person served with summons as a partner under rule 3 may enter an appearance under protest, denying that he was a partner at any material time.
  • (2) On such appearance being made, either the plaintiff or the person entering the appearance may, at any time before the date fixed for hearing and final disposal of the suit, apply to the Court for determinig whether that person was a partner of the firm and liable as such.
  • (3) If, on such application, the Court holds that he was a partner at the material time, that shall not preclude the person from filing a defence denying the liability of the firm in respect of the claim against the defendant.
  • (4) If the Court, however, holds that such person was not a partner of the firm and was not liable as such that shall not preclude the plaintiff from otherwise serving a summons on the firm and proceeding with the suit; but in that event, the plaintiff shall be precluded from alleging the laibility of that person as a partner of the firm in execution of any decree that may be passed against the firm.]

Order 30 Rule 9. Suits between co-partners

  • This Order shall apply to suits between a firm and one or more of the partners therein and to suits between firms having one or more partners, in common; but not execution shall be issued in such suits except by leave of the Court, and, on an application for leave to issue such execution, all such accounts and inquiries may be directed to be taken and made and directions given as may be just.

Order 30 Rule 10. Suit against person carrying on business in name other than his own

  • Any person carrying on business in a name or style other than his own name, or a Hindu undivided family carrying on business under any name, may be sued in such name or style as if it were a firm name, and, in so far as the nature of such case permits, all rules under this Order shall apply accordingly.

Suit Against Deceased PartnerNot be necessary to join the legal representatives

On the death of a partner, the partnership business will not come to an end (unless otherwise provided in the partnership-deed); the partnership business may continue.

Rule 4 (1) of Order 30, C.P.C. stipulates that it shall not be necessary to join the legal representative of the deceased as a party to the Suit on death of a partner, whether before the institution or during the pendency of any suit. Rule 4 (1) reads as under:

  • “Notwithstanding anything contained in Section 45 of the Indian Contract Act, 1872 (9 of 1872) where two or more persons may sue or be sued in the name of a firm under the foregoing provisions and any one of such persons dies, whether before the institution or during the pendency of any suit, it shall not be necessary to join the legal representative of the deceased as a party to the Suit”.

The Supreme Court in Upper India Cable Co. v. Sri Krishna, AIR 1984 SC 1986, it is held as under:

  • “Now the question is where the suit is instituted against the firm and partners are impleaded as proper parties, in the event of death of a partner so sued, would the suit or appeal, as the case may be, abate if heirs and legal representatives of the deceased partner are not substituted within the prescribed period of limitation. There is a twofold answer to this question. Order 30 Rule 4 provides that notwithstanding anything contained in Section 45 of the Indian Contract Act, 1872, where two or more persons are sued in the name of the firm under the enabling provisions of Order 30, and any such person dies whether before the institution of the suit or during the pendency of any suit, it shall not be necessary to join the legal representatives of the deceased as a party to the suit. Secondly death of a proper party would have no impact on the suit more so where on death of a partner the partnership may stand dissolved or heirs do not desire to join the firm. Both these aspects were overlooked by the High Court”.
  • “On the death of two of the proper or formal parties impleaded in their capacity as partners by the plaintiff along with the firm, in the absence of substitution of heirs and legal representatives the appeal abates”? I may even go a step further in stating that even on the death of two necessary parties who are partners of a firm and the suit was filed against the firm, the impleading of legal representatives of the deceased as a party to the suit shall not be necessary as it is stated in Rule 4 of Order 30, C.P.C. The language in Rule 4 is unambiguous which states, “Whether before the institution or during the pendency of any suit, it shall not be necessary to join the legal representative of the deceased as a party to the suit.”

Decree Obtained Against a Partner Cannot be Executed Against Legal Heirs

In SP Misra v. Mohd. Laiquddin Khan, (2019) 10 SCC 329, it is held that a partnership firm stands dissolved, on the death of a partner, by operation of law under Section 42(c) of the Indian Partnership Act, 1932; and therefore, the decree obtained against a partner cannot be executed against his legal heirs.

When all Partners are Necessary Parties

  • Partition of partnership property
  • Suit for settling the accounts of the dissolved firm
  • When firm constituted to take up a venture – after the completion of such venture.

Apex Court Impleaded Partners, Suo Moto, as Proper Parties, in eviction Case

In Richard Lee v. Girish Soni, (2017) 3 SCC 194, our Apex Court it was ruled that there was no doubt that all the partners are not necessary parties ‘form the point of view of the eviction petitioners’ and that both the firm and all its partners should be on the array of parties as proper party for properly adjudicating the issue before the Rent Controller in view of the contentions taken by the parties. The Apex Court impleaded the partners suo moto observing that the Court has a duty to see whether the presence of the proper parties would facilitate the complete determination of the matter in dispute.

Clauses impose obligations to legal heirs are opposed to public policy

In SP Misra v. Mohd. Laiquddin Khan, (2019) 10 SCC 329, it is held as under:

  • “When such legal representative are not parties to the contract, such contract cannot confer rights or impose obligations arising under it on any third party, except parties to it. No one but the parties to the contract can be entitled under it or born by it. Such principle is known as ‘Privity of Contract’. When the partnership stands dissolved by operation of law under Section 42(c) of the Indian Partnership Act, 1932, the question of execution in pursuance of the decree does not arise. There cannot be any contract unilaterally without acceptance and agreement by the legal heirs of the deceased partner. If there are any clauses in the agreement, entered into between the original partners, against the third parties, such clauses will not bind them, such of the clauses in the partnership deed, which run contrary to provisions of Indian Partnership Act, 1932, are void and unenforceable. Such clauses are also opposed to public policy.”

Bar under Sec. 69 Partnership Act is absolute

A partnership deed is not necessary to form a partnership. The deed, if any, also need not be registered. (However, it must be made on Proper Stamp). But:

  • Section 69(1) Partnership Act directs that the registration of a firm is mandatory, and a condition precedent, to institute a suit by one partner against the firm or another partner.
  • Section 69(2) directs that registration is necessary for suit by or on behalf of a firm (that is, by the firm or its partners) (i) against a third party (ii) to enforce a contract with the firm.
    • Note: Sec. 69 is not attracted when a suit is filed against a third party or reliefs other than enforcement of contract – like, enforcement of a statutory right (trade mark) or a common law right or a right under TP Act (eviction of tenant).
  • Section 69(3) directs that registration is necessary for claiming ‘set off’.

Sec. 69(2) and Order 30 Rule 1 deal with different aspects and operate separately

  • Rules I of Order 30 deals with the mode or form in which the suit to be instituted. It requires that the ‘persons suing in the name of the firm should be partners at the time of the accruing of the cause of action.
  • Section 69(2) of the Partnership Act should be satisfied in order that a suit can be instituted. That is, to institute a suit (i) to enforce a contract  (ii) by or on behalf of a firm  (iii) against a third party, (a) the registration of a firm is a condition precedent, and (b) the name of the partners suing must have been shown in the Register of Firms.
  • In short, these two independent provisions must be complied, when a suit is instituted (i) to enforce a right from a contract (ii) (in a contract) with the firm and (iii) against any third party.
  • Section 69 requires that (i) all the partners at the time of the institution of the suit must be parties to the suit and (ii) their names also be in the Register of Firms- to proceed with the matters stated in Sec. 69 (though Or. 30 r. I enables – two or more partners to sue). (See: Firm of V. Ramchandraiah Gupta v. Ravula Venkat Reddy, 1970 (1) Andhra WR 243 Hansraj Manot’s (1962) 66 Cal WN 262; Sohanlal Basant Kumar vs Umraomal Chopra, 1985 (1) WLN 791.
  • Note:
    • If the partners at the time of accruing of the cause of action (to enforce a contract) and the partners at the time of instituting the suit are different, to institute a suit in the name of the firm, against a third party following persons must be in the party array –
      • (i) all partners at the time of cause of action and
      • (ii) all partners at the time of filing the suit.
    • Note – Rule 1(1) of Order 30 CPC says – “with the name of the firm” and Rule 1(2) says – “in the name of their firm“.
  • The firm can be made as a party, in a suit, in addition to the partners; or the firm alone be made as the party, naming the partners thereafter followed by the words – “represented by”.

Plaint must be signed by Partners in the Register of Firms on the DATE OF THE SUIT

In M/s. Shreeram Finance Corpn. v. Yasin Khan, AIR 1989 SC 1769,  the Supreme Court has held that the plaint verified and signed by the partners as on the date of the suit who were not shown as partners in the register of firms, is not maintainable in view of S. 69(2) of the Indian Partnership Act. In para 6 of the judgment the Supreme Court has observed as follows:

  • “6. In the present case the suit filed by the appellants is clearly hit by the provisions of sub-s. (2) of S. 69 of the said Partnership Act, as on the date when the suit was filed, two of the partners shown as partners as per the relevant entries in the Register of Firms were not, in fact, partners, one new partner had come in and two minors had been admitted to the benefit of the partnership firm regarding which no notice was given to me Registrar of Firms. Thus, the persons suing, namely, the current partners as on the date of the suit were not shown as partners in the Register of Firms. In the result is that the suit was not maintainable in view of the provisions of sub-s. (2) of S. 69 of the said Partnership Act and the view taken by the Trial Court and confirmed by the High Court in this connection is correct”.

S. 69(2) directs ‘all partners’ must sue

Prior to M/s. Shreeram Finance Corpn. v. Yasin Khan, AIR 1989 SC 1769 (supra), there was difference of opinion as to ‘persons suing’ in Section 69(2) –

  • (i) it is the partners on the date of the institution of the suit. (Shanker Housing Corporation v. Mohan Devi, AIR 1978 Del 255. Also see decisions referred to therein – given below)
  • (ii) it is the partners (also) at time of the accruing of the cause of action (Bharat Sarvodaya Mills Co. Ltd. v. Mohatta Brothers, AIR 1969 Guj 178; Gandhi Company v. Krishna Glass Pvt. Ltd. (1983) 85 BomLR 179; Gurushiddayya Kalkayye Delimath v. Shah Hirachand Venechand and Co., AIR 1972 Mys 209; Sohanlal Basant Kumar v. Umraomal Chopra, 1985 (1) WLN 791)
    • The line of decisions in this way are not good law in the light of M/s. Shreeram Finance Corpn. v. Yasin Khan, AIR 1989 SC 1769.

In Shanker Housing Corporation v. Mohan Devi, AIR 1978 Del 255 (D.B), it is held that the expression ‘persons suing’ in Section 69(2) of the Partnership Act means “all the partners of the firm who are its partners at the time of the institution of the suit. But, Rule I of Order 30 CPC provides that two or more partners can sue.

The contention raised in the case (the court rejected it) was the following-

  • “Rule I of Order 30 requires that the ‘persons suing in the name of the firm’ should be partners at the time of the accruing of the cause of action, and, therefore, the same meaning should be given to the words “persons suing” in Section 69(2) of the Partnership Act, 1932, and the “persons suing” in requirement (b) therein means the person who were partners at the time of the accruing of the cause of action and not on the date of the institution of the suit and it is sufficient for the purposes of requirement (b) if they have been shown in the Register of Firms as partners in the firm.”

The Delhi High Court pointed out that Section 69(2), makes the registration of a firm a condition precedent to the institution of a suit by or on behalf of a firm against a third party. It deals with the question as to when a firm can sue, or be sued by, a third party in respect of a right arising from a contract, and provides certain requirements as conditions precedent for the institution of the suit, viz.. (a) that the firm is a registered firm, and (b) the persons suing are or have been shown in the Register of Firms as partners in the firm. On the other hand, Rules I and 2 of Order 30 of the Code of Civil Procedure provide the mode or form and the procedure for suits by or against a firm. In other words, the requirements in Section 69(2) should be satisfied first in order that a suit can be instituted, and then the provisions of Rules I and 2 of Order 30 are attracted as regards the mode or form in which the suit may be instituted as well as the procedure applicable to the said suit. In providing the mode Rule I prescribes a certain requirement, viz., that the persons mentioned therein must have been partners at the time of the accruing of the cause of action.

Then the court observed as under:

  • (16) Thus, the provisions in Section 69(2) of the Partnership Act and those in Rule 1 of Order 30 deal with different aspects and operate separately. The former deals with the question as to when a firm can sue or be sued by a third party in respect of a right arising from a contract and prescribes certain requirements for the same, while the latter deals with the mode or form and the procedure for suits by or against firms, and prescribes a certain requirement for the same. It would not, therefore, be correct to interpret the. words “persons suing” in Section 69(2) and the point of time at which the requirements in Section 69(2) are to be fulfilled, by referring to the provision in Rule 1 of Order 30. In our opinion, the scope and effect of the two sets of provisions may be stated thus :
  • (17) Under Section 69(2), a suit to enforce a right arising from a contract can be instituted by or on behalf of a firm against any third party only if (a) the firm is registered and (b) the persons suing, i.e., the persons suing, i.e., all the partners of the firm at the time of the institution of the suit, are or have been shown in the Register of Firms as partners in the firm, while under Rule I of Order 30 two or more persons who claim as partners may sue, or who are liable as partners may be sued, in the name of the firm (if any), provided such persons were partners at the time of the accruing of the cause of action. It the facts in a given case are such as to attract the applicability of the provisions in both Section 69(2) and Rule I of Order 30, the requirements in both the provisions should be fulfilled. In such a case, if a suit to enforce a right arising from a contract is to be instituted by or on behalf of a firm against any third party, the firm has to be a registered firm, and the partners ‘ of the firm as on the date of the institution of the suit must have been shown in the Register of Firms as partners in the firm, and further they must have been partners of the firm at the time of the accruing of the cause of action.
  • (18) As regards the scope and effect of Section 69(2) of the Partnership Act, at view similar to the one expressed by us above baa been taken in the following decisions, vide-
  • (1)Firm Manghoomal Jethamal v. Finn Aratmal Satramdas Air 1922 Sind 13 ;
  • (2)Pratapchand Ramchand &Co. v. Jehangiriji Air 1940 Bom 257;
  • (3)Sri Meenakshi Mills v. C. Swaminatha Mudaliar and Bros. AIR 1944 Mad 443;
  • (4)Bank of Koothathikulam v. Itten Thomas. Air 1955 Travancore-Cochin, 155.
  • (5)Dr. V. S. Bahl v. M/s. S. L. Kapur ami Co., AIR 1978 Delhi 255;
  • (6)Kesrimal v. Dalichand A.IJt. 1959 Raj 140;
  • (7)Hansraj Manot. M/s. Goraknatth Champalal Pandey, 66 C.W.N. 262;
  • (8)Firm Buta Mal Dev Raj v.-Chanan Mal and others. A.I.R. 1964 Punjab 270;
  • (9)Firm Alwar Iron Syndicate v. Union of India, AIR 1970 Raj 86,
  • (10)M/s. Badrimal Ramcharan & Co. v. M/s. Gana Kaul & Sons Air 1971 J&K 109;
  • (11)M/s. Chandrabhan Bansilal Ramratan Dass v. Municipal Council, Bikaner, AIR 1975 Raj 35 and
  • (12)Ram Kumar Shew Chandrai v. Dominion of India. AIR 1977 Cal 37.”

In Firm Buta Mai Dev Raj v. Chanan Mai, AIR 1964 Punj 270 it was pointed out that in order to institute a suit, a partnership firm must not only be a registered firm but also all the persons who are partners in the firm at the time of the institution of the suit must be, or have been, shown as such in the Register. The expression “the persons suing” in Section 69(2) must mean the partners in the firm. The use of the plural “persons” is obviously deliberate, since -while a singular may also mean the plural, the plural can never mean, singular. When a suit is instituted in the name of a firm the suit is on behalf of all the partners, and not only such of them as are shown, in the Register as such, and all the partners must be “the persons suing” contemplated in Section 69(2).

In Firm Alwar Iron Syndicate v. Union of India, AIR 1970 Raj 86, it is observed as under:

  • “6. It appears to me, however, that there is really no room for any controversy in regard to the correct meaning and purpose of Sub-section (2) of Section 69. It is well settled that a firm as such is not an entity in aw and is not a “person” within the meaning of Section 4 of the Partnership Act. Its name is therefore a mere abbreviated name of all its partners: Dulichand Laxminarayan v. Commr. of Income-tax, Nagpur, AIR 1956 SC 354. It is for this reason that special provisions have been made in Order 30, P. C. regarding suits by or against firms and persons carrying on business in names other than their own. So it is beyond doubt that even if a suit is brought in the name of a firm, it is really a suit by all its partners under the firm name. In other words, the persons suing are all the partners of the firm at the relevant date and none of them can, or obvious reasons, be left out for purposes of the suit. So it is incorrect to say that subsection (2) of Section 69 merely requires that only the person or persons actually signing the plaint on behalf of the firm should be shown in the Register of Firms as its partners. The word “persons” in the subsection has been used in the plural by design and serves an important purpose for it brings, out the real nature of a partnership firm which cannot consist of a single person. This is the view taken in –
  • Kapur Chand Bhagaji, Firm v. Laxrnan Trimbak, AIR 1952 Nag 57 and
  •  Dr. VS Bahal v. SL Kapur, AIR 1956 Punj 24.
  • The decision in Dr. VS Bahal’s case, AIR 1956 Punj 24 does not appear to have been noticed in AIR 1959 Punj 530 on which reliance has been placed by Mr. JP Jain, but it has been followed in AIR 1964 Punj 270.
  • It has also been followed in Hansraj Manot v. Gorak Natb Champalal Pandey, (1962) 66 Cal WN 262 and, if I may say so with respect, these judgments lay down the correct law on the point.”

Defect (not signing by Partner) Cannot be Cured by Amendment of Plaint

The plaintiff in Popular Automobiles v. Chami, was a partnership firm and the plaint is verified, signed and filed by the Manager claiming that he had been authorised by one of the partners. The Kerala High Court (1 February, 2001) relying on M/s. Shreeram Finance Corpn. v. Yasin Khan, AIR 1989 SC 1769, held that the suit was filed in violation of the mandatory provisions of S. 69(2) of the Indian Partnership Act; and therefore, the petition to amend the plaint was not sustainable.

If the parties were not properly described, it will be allowed to be corrected

In M/S CS Company v. The Kerala State Electricity Board (2022) it is held by the Kerala High Court that it was open to the court to allow to amend the pleadings if the parties were not properly described or if there was a defective description of the parties. Such defect cannot be said to be fundamental or in the nature which cannot be permitted to be corrected. Therefore, it was held that if at all there was a defect in the cause title, an amendment could have been permitted by the court below. Such defect if any cannot be made a ground to hold the suit to be not maintainable.

Registration of the Firm Must be proved by Certified Copy of Register

Nagpur High Court in Kapurchand Begaji Firm v. Laxman Triabuk, AIR 1952 Nag 57, held that the Register of Firms being a public document the requirements of Section 69(2) were to be complied with by producing a certified copy of an entry from that register; and that the oral evidence of the plaintiff-partner is not admissible as secondary evidence. The same view was taken in Chhotelal Darbarilal v. Mohammed Hussain AIR 1955 VP 44, M/s Badrimal Ramcharan and Co. v. M/s. Gama Kaul and Sons, AIR 1971 J&K 103; Sohanlal Basant Kumar vs Umraomal Chopra, 1985 (1) WLN 791.

Firm Need not be a Party

In M.S. Pearl Sound Engineer v. M/s. Poonam Chand, it was held that when the suit is instituted by all the partners, it was not necessary to implead the firm, and impleading the firm was merely a surplusage. (Referred to in: Sohanlal Basant Kumar vs Umraomal Chopra, 1985 (1) WLN 791).

Death of a Partner in the Registered Firm

In M/s Durga Das Janak Ram v. Preete Shah Sant Ram, AIR 1959 P H 530, Punjab High Court, following the decision of the Bombay High Court in Pratapchand Ramchand & Co. v. Jahangirji Bomanji, AIR 1940 Bom 237 held that the firm continued to be registered in spite of the death of one of the partners (and non-reporting of this fact to the Registrar) and the remaining partners were was entitled to institute a suit. But, in Krishna Chandra Agarwalla v. Shanti Prasad Jain, AIR 1981 Cal 199, it was held that if firm could not be maintained without the son of the deceased partner and his name did not appear in the Register of Firms, the suit filed by the firm could not be proceeded with. (See also: Maddi Sudarsanam v. Borogu Viswanadham Brothers, AIR 1955 AP 12; Sohanlal Basant Kumar vs Umraomal Chopra, 1985 (1) WLN 791).

Court will have no jurisdiction to entertain a suit in violation of Section 69(1)

In Abani Kanta Pal v. Unknown, AIR 1986 Cal. 143, it is stated as under:

  • “9. In our opinion, it may be that S. 13(6) of the West Bengal Premises Tenancy Act puts an embargo on the plaintiff and does not oust the jurisdiction of the Court. A defendant in a suit for eviction may waive service of a notice under Section 13 (6). Section 69 (1) of the Partnership Act, however, stands on a different footing. The embargo that has been put on the plaintiff under sub-sections (1) and (2) of Section 69 is not for the purpose of protecting the interest of any party, but it is based on public policy. The requirements of sub-sections (1) and (2) of Section 69 cannot be waived by the defendant, and the Court is debarred from entertaining a suit ignoring the fulfilment of such requirements. So, if a firm is not registered, excepting a suit as contemplated by Section 69 (3), the Court will have no jurisdiction to entertain a suit in violation of Section 69(1). In other words, the plaint that has been filed by the plaintiff will be considered a void plaint, if it contravenes the provisions of sub-sections (1) and (2) of Section 69 of the Partnership Act. This view finds support from a decision of the Supreme Court in Loonkaran Sethia Vs. Ivan E. John, AIR 1977 SC 336. In that case, sub sections (1) and (2) of Section 69 were involved. The Supreme Court made the following observations;
    • “A bare glance at the section is enough to show that it is mandatory in character and its effect is to render a suit by a plaintiff in respect of a right vested in him or acquired by him under a contract which he entered into as a partner of an unregistered firm, whether existing or dissolved void. In other words, a partner of an erstwhile unregistered partnership firm cannot bring a suit to enforce a right arising out of a contract falling within the ambit of Section 69 of the Partnership Act.”

 “Share between the parties” is a prayer for “Dissolution”

In Mukund Balkrishna Kulkarni v. Kulkarni Powder Metallurgical Industries, (2004) 13 SCC 750, the Supreme Court considered the applicability of Section 69(1). The suit was for declaration that the respondent no. 1 was a partnership business in which both the appellant and the respondent no. 2 had equal shares along with the prayer for dissolution of the firm and rendition of accounts.

Section 69(1) Partnership Act directs that the registration of a firm is mandatory, and a condition precedent, to institute a suit  by one partner against the firm or another partner.

It was pointed out that the two embargoes which must co-exist for the plaintiff to be non-suited under Section 69(1) would be that:

  • .i. The suit should be filed by a person “suing as a partner in a firm” and;
  • ii. The suit must be to enforce a right arising from a contract.

The High Court held that the prayer of the appellant, namely,

  • for a declaration of the existence of the partnership and
  • the share between the parties

was a suit to enforce a right under a contract against the firm.

Allowing the appeal the Apex Court held as under:

  • “A prayer for such declaration could not be said to be made by person suing as a partner. It was a prayer to be a partner and is therefore not debarred under the provisions of Section 69(1). Furthermore, what was in fact being prayed for by the appellant was a declaration of the existence of a contract between the parties. That could not be said to be a suit to enforce a right arising from a contract. The second prayer of the appellant was not to continue as a partner of the firm but to dissolve the firm. To that extent the appellant was suing “as a partner”.
  • This he was entitled to do under Section 69(3)(a) which insofar as it is relevant, reads as follows:
    • “69. (3) The provisions of sub-sections (1) … shall not affect—
    • (a) the enforcement of any right to sue for the dissolution of a firm or for accounts of a dissolved firm, or any right or power to realise the property of a dissolved firm;”
  • This decision is referred to in: Sunkari Tirumala Rao vs Penki Aruna Kumari (2025 INSC 92).

Sunkari Tirumala Rao v. Penki Aruna Kumari on 17 January, 2025

Our Apex Court, in Sunkari Tirumala Rao vs Penki Aruna Kumari (2025 INSC 92, 17 January, 2025), the plaintiffs filed the suit for recovery of money in their capacity as partners of an unregistered partnership firm, against the defendant in her capacity as a partner of the same unregistered partnership firm. The Apex Court (referring Seth Loonkaran Sethiya v. Mr. Ivan E. John, (1977) 1 SCC 379 and Mukund Balkrishna Kulkarni v. Kulkarni Powder Metallurgical Industries, (2004) 13 SCC 750) found –

  • (i) a partner of an unregistered Partnership cannot sue against the firm or its partners for recovery of money and
  • (ii) instead, the petitioner should have preferred a suit for dissolution of the partnership firm and rendition of accounts.

It is held as under:

  • “8. It is evident from a reading of sub-sections (1) and (2) of Section 69 that it assumes a mandatory character. Section 69(1) prohibits a suit amongst the partners of an unregistered partnership firm, for the enforcement of a right either arising from a contract or conferred by the Act, unless the suit amongst the partners is in the nature of dissolution of the partnership firm and/or rendition of accounts. Section 69(2) prohibits the institution of a suit by an unregistered firm against third persons for the enforcement of a right arising from a contract. As a consequence, a suit filed by an unregistered partnership firm and all proceedings arising thereunder, which fall within the ambit of Section 69 would be without jurisdiction.
  • 15. It is a clear as a noon day that the present suit had not been instituted by or on behalf of the firm against any third persons so as to fall under the ambit of  Section 69(2). The petitioners have also not filed the instant suit for enforcing any statutory right conferred under any other law or a common law right so as to exempt the application of  Section 69. Hence, the rigours of  Section 69(1) would apply on such a suit and the partnership firm being unregistered would prevent the petitioners from filing a bare suit for recovery of money from the respondent.
  • 16. It would have instead been appropriate for the petitioner to have preferred a suit for dissolution of the partnership firm and rendition of accounts, especially considering that the factum of non-registration of the partnership firm would not have acted as bar in a suit for dissolution in light of the exception carved out under  Section 69(3). The defence that the partnership business had not yet commenced and thus, such a suit for dissolution could not have been preferred, would not be of any avail to the petitioners, particularly for overcoming the jurisdictional bar under  Section 69(1). The High Court is right in taking the view that a suit of such nature could not be said to be maintainable in the absence of the registration of the partnership firm.”

Part III

Unregistered Partnership Firm Cannot Bring A Suit for Enforcement of Contract

A suit hit by Sec. 69 Partnership will be struck off at the threshold – Mr. S.Thiagarajan v. M/S.Supreme Pipe Syndicate, 2018-1 Civil CC 775.

In Loon Koran v. Ivan E. John, AIR 1977 SC 336, it is observed as under:

  • “A bare glance at the section is enough to show that it mandatory in character and its effect is to render a suit by a plaintiff in respect of a right vested in him or acquired by him under a contract which he entered into as a partner of an unregistered firm whether existing or dissolved, void. In other words, a partner of a erstwhile unregistered partnership firm cannot bring a suit to enforce a right arising out of a contract falling within the ambit of section 69 of the Partnership Act.” (quoted in: V.A. Abdul Wahab Sahib v. Abdul Subhan Sahib, (1998) 2 MLJ 720).

A co-ownership venture is not a Partnership; It is not Affected by Sec. 69 Bar

A partnership (that arises by an agreement to share profits or loss) cannot be put an end by a partner without consent of others; whereas in a co-ownership venture, a co-owner can transfer his interest. Because co-ownership activities are not governed by Partnership Act, Sec. 69 Bar is not applicable to the same.

Bar under Section 69 to ‘Other Proceedings’ also – to Get Rent Reduced

A suit by a tenant to get the rent reduced is thus a suit to enforce a right arising out of a contract of tenancy. The suit therefore falls under Section 69 of the Partnership Act. See: Gappulal Gordhandas v. Chunilal Shyam Lal, AIR 1961 Raj 286.

Bar to Claim Restoration of Benefits under S. 65 Contract Act

According to Section 65 of the Indian Contract Act, when an agreement is discovered to be void, or when a contract becomes void, any person who has received any advantage under such agreement or contract is bound to restore it, or to make compensation for it, to the person from whom he received it. Because of the bar under the provisions of Section 69 of the Partnership Act, it is found in Bijendra Prasad v. Smt. Duleshwari Devi, AIR 1998 Pat 122, that the partners of the unregistered partnership cannot claim benefits under Sec. 65 of the Contract Act.

Partnership Cannot Amend to Become a Proprietorship

S. Krishnan v. Aruna and Associates, (1979) 2 MLJ 1, it is held that a suit filed as a partnership cannot amend to become a proprietorship. It is observed as under:

  • “When once he takes up a stand that it is a partnership firm, he should stand by it. Once he takes up the position that it is a dissolved firm, equally he should be prepared to substantiate it. But he cannot have a third way out of it by bringing in a person who was a quondam partner of the unregistered firm as if he has become the proprietor thereto on dissolution. This metamorphosis is not available in law.”

The Supreme Court Haldiram Bhujiawala v. Anand Kumar Deepak Kumar, in (2000) 3 SCC 250, observed as under:

  • “The points that arise for consideration are:
  • (I)Whether Section 69 (2) bars a suit by a firm not registered on the date of suit where permanent injunction and damages are claimed in respect of a trademark as a statutory right or by invoking common law principles applicable to a passing-off action?
  • (II) Whether the words “arising from a contract” in Section 69 (2) refer only to a situation where an unregistered firm is enforcing a right arising from a contract entered into by the firm with the defendant during the course or its business or whether the bar under Section 69 (2) can be extended to any any contract referred to in the plaint unconnected with the defendants, as the source of title to the suit property?

On question No. 1 the Supreme Court held as under:

  • “(9) The question whether Section 69(2) is a bar to a suit filed by an unregistered firm even if a statutory right is being enforced or even if only a common law right is being enforced came up directly for consideration in this Court in Raptakas Brett Co. Ltd. Vs. Ganesh Property, (1998) 7 SCC 184. In that case, Majumdar J.. speaking for the Bench clearly expressed the view that Section 69 (2) can not bar the enforcement by a way of a suit by an unregistered firm in respect of a statutory right or a common law right. On the facts of that case, it was held that the right to evict a tenant upon expiry of the lease was not a right ” arising from a contract” but was a common law right or a statutory right under the Transfer of Property Act. The fact that the plaint in that case referred to a lease and to its expiry, made no difference. Hence, the said suit was held not barred. It appears to us that in that case the reference to the lease in the plaint was obviously treated as a historical fact. That case is therefore directly in point. Following the said judgment, it must be held in the presence case too that a suit is not barred by Section 69 (2) if a statutory right or a common law right is being enforced.

It is held while answering question No. 2:

  • “The above provision clearly signifies that the right that is sought to be enforced by the unregistered firm and which is barred must be a right arising out of a contract with a third party – defendant in respect of the firm’s business transactions….. The real crux of the question is that the legislature when it used the word “arising out of a contract” in Section 69(2), it is referring to a contract entered into in course of business transaction by the unregistered plaintiff firm with its customers – defendants and the idea is to protect those in commerce who deal with such a partnership firm in business. Such third parties who deal with the partners ought to be enabled to know what the names of the firm are before they deal with them in business.”

In this case our Apex Court pointed out as under:

  • if the firm is not registered on date of suit and the suit is to enforce a right arising out of a contract with the third party- defendant in the course of its business, then it will be open to the plaintiff to seek withdrawal of the plaint with leave and file a fresh suit after registration of the firm subject of course to the law of limitation and subject to the provisions of the Limitation Act. This is so even if the suit is dismissed for a formal defect. Section 14 of the Limitation Act will be available inasmuch as the suit has failed because the defect of non-registra-tion falls within the words “other cause of like nature” in section 14 of the Limitation Act, 1963. See Surajmal Dagduramji Shop v. M/s. Srikishan Ram Kishan, AIR (1973) Bom. 313.”

In Ramachandraiah Gupta v. Ravula Venkat Reddy, 1971 Andhra WR. 243 (Justice O. Chinnappa Reddy) held as under:

  • “Now, a firm is not a legal entity at all, but is a mere abbreviated name for the several partners of which it consists. Ordinarily, therefore, a suit may not be brought by a firm in its own name but a suit may be brought by all the partners acting together or by some of the partners only but impleading the other partners also as parties to the suit. However Order 30, Rule 1 of the Civil Procedure Code prescribes a special procedure by which a suit may be brought in the name of the firm. It provides that any two or more persons claiming or being liable as partners and carrying on business may sue or be sued in the name of the firm of which such persons were partners at the time of the accruing of the cause of action and that in such a case it shall suffice if one of such persons signs, verifies or certifies any pleadings or document required by the Code to be signed, verified and certified by the plaintiff or the defendant. The effect of a suit instituted in the name of the firm in the manner, prescribed by Order 30, Rule 1 is as if the suit is filed by all the partners collectively. Whether the suit is filed by all the partners collectively or by some only of the partners impleading the rest as parties to the suit or whether it is filed in the name of the firm prescribed by Section 69(2) must be fulfilled. They are (1) that the firm must be registered and (2) that the persons suing are or have been shown in the Register of Firms as partners in the Firm….”

S. 69(2) No Bar for Enforcement of a Statutory Right or a Common Law Right

Section 69(2) of the Act of 1932 is not a bar to a suit filed by an unregistered firm, if the same is for enforcement of a statutory right (like, trade mark) or a common law right or a right under TP Act (like, eviction of tenant – Govindaraja Naicker v. Sapthagiri Complex, ILR 1994 Kar 1832).

To attract the bar of Section 69(2) of the Act of 1932, the contract in question (i) must be the one entered into by firm with the third-party defendant and (ii) must also be the one entered into by the plaintiff firm in the course of its business dealings.

  • Raptakos Brett & Co. Ltd. v. Ganesh Property: (1998) 7 SCC 184, Haldiram Bhujiawala v. Anand Kumar Deepak Kumar: (2000) 3 SCC 250. Referred to in: Shiv Developers v. Aksharay Developers, 2022 SCC OnLine SC 114.

S. 69(3) – No Bar for Suit for Dissolution

Sec. 69(3)(a) reads as under:

  • (3) The provisions of sub-sections (1) and (2) shall apply also to a claim of set-off or other proceeding to enforce a right arising from a contract, but shall not affect,—
  • (a) the enforcement of any right to sue for the dissolution of a firm or for accounts of a dissolved firm, or any right or power to realise the property of a dissolved firm, 

See: Sharda Ginning Pressing & Oil Mills v. Smt. Bimla Devi, (2007) 146 PLR 807

S. 69(2) Bar – Contract must be one in the Course of the Business Dealings

In Raptakos Brett & Co. Ltd. v. Ganesh Property, (1998) 7 SCC 184, it is held as under:

  • “23 The further and additional but equally important aspect which has to be made clear is that the contract by the unregistered firm referred to in Section 69(2) must not only be one entered into by the firm with the third-party defendant but must also be one entered into by the plaintiff firm in the course of the business dealings of the plaintiff firm with such third-party defendant.
  • 24… The real crux of the question is that the legislature, when it used the words “arising out of a contract” in Section 69(2), it is referring to a contract entered into in course of business transactions by the unregistered plaintiff firm with its defendant customers and the idea is to protect those in commerce who deal with such a partnership firm in business. Such third parties who deal with the partners ought to be enabled to know what the names of the partners of the firm are before they deal with them in business.”
  • 25 Further, Section 69(2) is not attracted to any and every contract referred to in the plaint as the source of title to an asset owned by the firm. If the plaint referred to such a contract it could only be as a historical fact. For example, if the plaint filed by the unregistered firm refers to the source of the firm’s title to a motor car and states that the plaintiff has purchased and received a motor car from a foreign buyer under a contract and that the defendant has unauthorisedly removed it from the plaintiff firm’s possession — it is clear that the relief for possession against the defendant in the suit does not arise from any contract which the defendant entered into in the course of the plaintiff firm’s business with the defendant but is based on the alleged unauthorised removal of the vehicle from the plaintiff firm’s custody by the defendant. In such a situation, the fact that the unregistered firm has purchased the vehicle from somebody else under a contract has absolutely no bearing on the right of the firm to sue the defendant for possession of the vehicle. Such a suit would be maintainable and Section 69(2) would not be a bar, even if the firm is unregistered on the date of suit. The position in the present case is not different. (Quoted in: Shiv Developers v. Aksharay Developers, 2022 SCC OnLine SC 114)

In Shiv Developers v. Aksharay Developers, 2022 SCC OnLine SC 114, it is held as under:

  • “The relevant principles, when applied to the facts of the present case, leave nothing to doubt that the transaction in question was not the one entered into by the plaintiff firm during the course of its business (i.e., of building construction); and it had been an independent transaction of sale, of the firm’s share in the suit property, to the contesting defendants. The bar of Section 69(2) is not attracted in relation to the said sale transaction. Moreover, the subject suit cannot be said to be the one for enforcement of right arising from a contract; rather the subject suit is clearly the one where the plaintiff seeks common law remedies with the allegations of fraud and misrepresentation as also of the statutory rights of injunction and declaration in terms of the provisions of the Specific Relief Act, 1963 as also the Transfer of Property Act, 1882 (while alleging want of the sale consideration). Therefore, the bar of Section 69(2) of the Act of 1932 does not apply to the present case.”

Cause of action on dishonour of cheques & contract under Sec. 69

  • In Afsal Baker vs. Maya Printers, 2016 SCC OnLine Ker 29914, it is held that the suit on the cause of action on dishonour of cheques can be brought independent of Sec. 69 of the Partnership Act, as it is not on a ‘contract’ stated in Sec. 69.

Suit by Sole (remaining) Partner Maintainable

In Gujarat Water Supply and Severage v. Sundardas Hukumatram Shivanani, AIR 1991 Guj 170, a contract was entered into by a partnership firm with the Government. One among the three partners of the firm was the plaintiff. Before filing the suit, other two partners had been retired. The plaintiff filed the suit for recovery of rights and liabilities of the dissolved firm. The High Court held that the suit was maintainable though the partnership firm was not registered.

A suit by one partner against another for damages on the grounds of the misconduct of his partner was held to be maintainable in Navinchandra Jethabhai v. Moolchand Sadaram Gindodiya, AIR 1966 Bom 111.

No Bar to Arbitration

It is held by our Apex Court in Kamal Pushp Enterprises v. DR Construction Company, AIR 2000 SC 2676, that Section 69(3) of the Partnership Act has no application to proceedings before an Arbitrator; and therefore, an Arbitration and Award would not be vitiated. (But see: Jagdish Chander Gupta v. Kajaria Traders (India) Ltd., AIR 1964 SC 1882)

Subsequent Registration Will Not Cure the Defect

In Delhi Development Authority v. Kochhar Construction Work, (1998) 8 SCC 559, following Shreeram Finance Corporation, it was held that proceedings under  the Arbitration Act were ab initio defective for the firm was not registered; and that the subsequent registration of the firm could not cure that defect. (Followed in U.P. State Sugar Corporation Ltd vs Jain Construction Co. (2004) 8 SCC 559) See also: Haldiram Bhujiawala v. Anand Kumar Deepak Kumar, 2000(3) SCC 250.

In Dwijendra Nath Singh v. Govinda Chandra, AIR 1953 Cal 497 (Dasgupta, G Ray, JJ.) the suit was brought by two persons who are described as the owners of the firm Samanta Naskar and Co. When the suit was instituted this firm had not been registered. It however was registered before the suit came to be heard. It was held following Firm Laduram Sagarmal v. Jamuna Prasad, AIR 1939 Pat 239 and Varadarajulu v. Rajmanika, AIR 1937 Mad 767, that a suit which was not maintainable by reason of non-compliance with S. 69 of the Partnership Act cannot become maintainable at a later stage by reason of registration and the subsequent registration cannot cure the initial defect.

Part IV

Benefits of Registration Partnership

The Partners of a registered partnership alone can –

  • 1. file suits against third parties to enforce rights arising from a contract
  • 2. claim set-off on such contracts.
    • (Note: A third party is free to file suits against a Firm irrespective of its registration status.)
  • 3. sue Co-partners (or firm) for enforcing the clauses of Partnership Deed.
    • (Note: The Partners of an unregistered Partnership cannot enforce the clauses of Partnership Deed.)

When can a Partner of an Unregistered Firm File Suits against a Firm

The Partners of an unregistered firm can file suits against a firm  (i) for accounts of a dissolved firm, (ii) for the dissolution of a firm or (iii) for realising the property of a dissolved firm.

Effect of Non-Registration of a Firm

Section 69 deals with it. It reads as under:

  • 69. Effect of Non-registration
  • 1. No suit to enforce a right arising from a contract or conferred by this Act shall be instituted in any court by or on behalf of any person suing as a partner in a firm against the firm or any person alleged to be or to have been a partner in the firm unless the firm is registered and the person suing is or has been shown in the Register of Firms as a partner in the firm.
  • 2. No suit to enforce a right arising from a contract shall be instituted in any Court by or on behalf of a firm against any third party unless the firm is registered and the persons suing are or have been shown in the Register of Firms as partners in the firm.
  • 3. The provisions of sub-sections (1) and (2) shall apply also to a claim of set-off or other proceeding to enforce a right arising from a contract, but shall not affect,—
    • (a) the enforcement of any right to sue for the dissolution of a firm or for accounts of a dissolved firm, or any right or power to realise the property of a dissolved firm, or
    • (b) the powers of an official assignee, receiver or Court under the Presidency-towns Insolvency Act, 1909 (3 of 1909) or the Provincial Insolvency Act, 1920 (5 of 1920) to realise the property of an insolvent partner.
  • 4. This section shall not apply,—
    • (a) to firms or to partners in firms which have no place of business in[the territories to which this Act extends], or whose places of business in [the said territories], are situated in areas to which, by notification under [section 56], this Chapter does not apply, or
    • (b) to any suit or claim of set-off not exceeding one hundred rupees in value which, in the Presidency-towns, is not of a kind specified in section 19 of the Presidency Small Cause Courts Act, 1882 (5 of 1882), or, outside the Presidency-towns, is not of a kind specified in the Second Schedule to the Provincial Small Cause Courts Act, 1887 (9 of 1887), or to any proceeding in execution or other proceeding incidental to or arising from any such suit or claim.

Execution Against a Partner who was not a Party in Trial

In J.K. Jute Mills Co. Ltd. v. Firm Birdhichand Sumermal (Mukerji, Beg, Agarwala, JJ), AIR 1958 All 176, while interpreting Order 21, Rule 50 CPC, Beg, J. (concurred by Mukerji, J.) referring earlier judgments, it was held that all the partners were not necessary parties in trial, to proceed in execution. Beg, J. summed up his Judgment observing the following:

  • The decree can be satisfied not only from the property of the partnership, but also from the personal property of each of the partners.
  • The question as to who are the persons who constitute the firm can be decided in execution proceedings.
  • Order 21, Rule 50 is designed to define the scope and to lay down the mode and method of such an enquiry.
  • Effect of Contrary View: If a partner (not impleaded or served) succeeds when re-agitate in execution proceedings, he would be fully bound by the decree which has already been passed in the suit against the firm, yet according to the order of the same Court at the execution stage in the same suit, he would not be so bound.
  • A contrary view might result in a conflict between the findings at the trial and at the execution stage in the same case.
  • Further, in such a case he would have to be held to be immune from personal liability as a partner even though his property as a partner would be liable for the satisfaction of the decree under Order 21, Rule 50(1) (a).
  • Again, if a partner not impleaded or served in the suit is allowed to re-agitate the whole matter on merits, then it would be open to him to raise again the same pleas which were raised by other partners who were served in the suit.
  • If the decision in the suit is not to be treated as res judicata against all partners, then it would be open to the same Court at the execution stage to take a different view of the same plea.
  • The result would be that on the same point there would be two conflicting findings at two stages of the same case.
  • Moreover, as a result of his objection at the execution stage, the claim might be found to be good against the firm only partially, even though the decree in the suit might postulate the liability in respect of the entire claim.
  • The contrary view might result not only in a conflict between the decree in the suit and the order in execution proceedings in the same suit, but also in a conflict between various orders at the execution stage itself.
  • Thus, where the number of partners who had not been served in the proceedings and against whom applications under Sub-rule (2) might be given is a very large and they are allowed to re-agitate the whole matter, the result would be that each time a fresh application against each of such persons is made, fresh objections might be taken.
  • If this procedure is allowed, then there would neither be any consistency in findings nor would there be any finality of decisions in the same matter. The situation thus created would be a highly embarrassing and confusing one.
  • If collusion, the matter has to be re-agitated either by a separate suit to have the decree set aside or by reviving the proceedings in the same suit itself.
  • The Legislature has, also, provided some safeguard by making the leave of the Court necessary for proceedings under Sub-rule 2.
  • Where facts are such as to raise the suspicion of collusion between the parties, the Court may refuse such permission. The enquiry contemplated against a person proceeded against under Sub-rule (2) was of a restricted character.

Order 21 Rule 50 CPC Reads As Under:

50. Execution Of Decree Against Firm.

  • (1) Where a decree has been passed against a firm, execution may be granted-
    • (a) against any property of the partnership;
    • (b) against any person who has appeared in his own name under rule 6 or rule 7 of Order XXX or who has admitted on the pleadings that he is, or who has been adjudged to be, a partner;
    • (c) against any person who has been individually served as a partner with a summons and has failed to appear:
  • Provided that nothing in this sub-rule shall be deemed to limit or otherwise affect the provisions of section 30 of the Indian Partnership Act, 1932 (9 of 1932).
  • (2) Where the decree-holder claims to be entitled to cause the decree to be executed against any person other than such a person as is referred to in sub-rule (1), clauses (b) and (c), as being a partner in the firm he may apply to the Court which passed the decree for leave, and where the liability is not disputed, such court may grant such leave, or, where such liability is disputed, may order that the liability of such person be tried and determined in any manner in which any issue in a suit may be tried and determined. 
  • (3) Where the liability of any person has been tried and determined under sub-rule (2) the order made thereon shall have the same force and be subject to the same conditions as to appeal or otherwise as if it were a decree. 
  • (4) Save as against any property of the partnership, a decree against a firm shall not lease, render liable or otherwise affect any partner therein unless he has been served with a summons to appear and answer. 
  • (5) Nothing in this rule shall apply to a decree passed against a Hindu Undivided Family by virtue of the provision of rule 10 of Order XXX.”

Indian Law and English Law on Registration of Partnership Firm

English law required compulsory registration of partnership; contravention was punishable. In India it is optional. The Supreme Court, in Haldiram Bhujiawala v. Anand Kumar Deepak Kumar, (2000) 3 SCC 250, referred the Report of the Special Committee (1930-31, consisted of Sir Brojendra Lal Mitter, Sir Dinshah F. Mulla, Sir Alladi Krishnaswamy Iyer and Mr. Arthur Eggar.) which examined the draft Bill and made recommendations to the legislature. Para 17 of the Report reads as under:

  • “17. The outlines of the scheme are briefly as follows. The English precedent, in so far as it makes registration compulsory and imposes a penalty for non-registration has not been followed, as it is considered that this step would be too drastic for a beginning in India, and would introduce all the difficulties connected with small or ephemeral undertakings. Instead, it is proposed that registration should lie entirely within the discretion of the firm or partner concerned; but, following the English precedent, any firm which is not registered will be unable to enforce its claim against third parties in the civil Court; and by partner who is not registered will be unable to enforce his claims either against third parties or against fellow partners”.

The Apex Court further pointed out that changes were made to the English law. The Court said:

  • “Business Names Act, 1985 has replaced the above Act of 1916 and Section 4 of the new Act refers to the ‘Civil Remedies for breach of Section 4’. It provides for dismissal of the action ‘to enforce a right arising out of a contract made in the course of a business’ if the firm is not registered.”

Conclusion

Considering the Indian situations, while enacting the Partnership Act for India, in 1932, registration of firms was not made compulsory. After independence also, the provisions as to registration of firms were not changed. Obviously, it is also because of the proclamations in Article 19(1) of the Constitution of India (in Fundamental Rights Chapter) which read as under:

  • (1) All citizens shall have the right
    • (a) to freedom of speech and expression;
    • (b) to assemble peaceably and without arms;
    • (c) to form associations or unions;
    • (d) to move freely throughout the territory of India;
    • (e)to reside and settle in any part of the territory of India; and
    • (f) (omitted)
    • (g) to practise any profession, or to carry on any occupation, trade or business.

‘Right to property’ was a Fundamental Right under Article 19(1)(g) of the Constitution of India. By the Constitution (Forty-fourth Amendment) Act, 1978, this right was omitted; and the right to property was belittled to a ‘Constitutional Right’ under Article 300A. It reads as under:

  • “No person shall be deprived of his property save by authority of law.”


End Notes

Dissolution of Partnership

Withdrawal of some Partners, and not by all, will not dissolve the firm. When any of the partner dies, retires or incapacitated and the remaining partners continue the business there will not be dissolution of the firm. Section 39 of the Partnership Act, 1932, as to the ‘dissolution of the firm’ says as under:

“39. Dissolution of A Firm:

  • The dissolution of a partnership between all the partners of a firm is called the ‘dissolution of the firm’.”

Dissolution of a Partnership firm – Two Ways

  • Dissolution otherwise than the intervention of the Court.
  • Dissolution by Court.

Provisions of the Partnership Act

Sections 40 to 43 of the Partnership Act are the relevant provisions as to dissolution ‘otherwise than through the intervention of the Court’. They read as under:

Section 40: Dissolution By Agreement:

  • A firm may be dissolved with the consenas to dissolution otherwise than through the t of all the partners or in accordance with a contract between the partners.  

Section 41: Compulsory Dissolution:

  • A firm is dissolved (a) by the adjudication of all the partners or of all the partners but one as insolvent, or (b) by the happening of any event which makes it unlawful for the business of the firm to be carried on or for the partners to carry it on in partnership :
  • Provided that, where more than one separate adventure or undertaking is carried on by the firm, the illegality of one or more shall not of itself cause the dissolution of the firm in respect of its lawful adventures and undertakings

Section 42: Dissolution on the Happening of Certain Contingencies: 

  • Subject to contract between the partners a firm is Dissolution On The Happening Of Certain Contingencies dissolved (a) if constituted for a fixed term, by the expiry of that term; (b) if constituted to carry out one or more adventures or undertakings, by the completion thereof; (c) by the death of a partner; and (d) by the adjudication of a partner as an insolvent.

Section 43: Dissolution By Notice of Partnership At Will:

  • (1) Where the partnership is at will, the firm may be dissolved by any partner giving notice in writing to all the other partners of his intention to dissolve the firm.
  • (2) The firm is dissolved as from the date mentioned in the notice as the date of dissolution or, if no date is so mentioned, as from the date of the communication of the notice.

Dissolution by the Intervention of Court

Section 44: Dissolution By The Court:

  • At the suit of a partner, the Court may dissolve a firm on any of the following grounds, namely:
  • (a) that a partner has become of unsound mind, in which case the suit may be brought as well by the next friend of the partner who has become of unsound mind as by any other partner;
  • (b) that a partner, other than the partner suing, has become in any way permanently incapable of performing his duties as partner;
  • (c) that a partner, other than the partner suing, is guilty of conduct which is likely to affect prejudicially the carrying on of the business regard being had to the nature of the business;
  • (d) that a partner, other than the partner suing, wilfully or persistently commits breach of agreements relating to the management of the affairs of the firm of the conduct of its business; or otherwise so conducts himself in matters relating to the business that it is not reasonably practicable for the other partners to carry on the business in partnership with him;
  • (e) that a partner, other than the partner suing, has in any way transferred the whole of his interest in the firm to a third party, or has allowed his share to be charged under the provisions of rule 49 of Order XXI of the First Schedule to the Code of Civil Procedure, 1908, or has allowed it to be sold in the recovery of arrears of land revenue or of any dues recoverable as arrears of land revenue due by the partner;
  • (f) that the business of the firm cannot be carried on save at a loss; or
  • (g) on any other ground which renders it just and equitable that the firm should be dissolved.

In Sohanlal Basant Kumar v. Umraomal Chopra, 1985 (1) WLN 791, after referring various previous decisions the Division Bench of the Rajasthan High Court (D P Gupta, K Lodha, JJ.) came to the following conclusions:

  • A firm is not a legal entity at all but is the collective term or an abbreviated name for all the persons who are partners thereof.
  • All such persons who have entered into a partnership with one another are individually called partners and collectively they are called a firm and the name under which their business is carried on is called the firm name.
  • Ordinarily, a suit may not be brought by a firm in its own name but a suit may be filed by all the partners acting together or by some of the partners only, but impleading the remaining partners also as parties to the suit.
  • However, Order 30 Rule 1 of the Code of Civil Procedure prescribes a special procedure by which a suit may be brought in the name of the firm.
  • Order 30 Rule 1 of the Code of Civil Procedure enables two or more persons, claiming or being liable as partners and carrying on business in partnership, to sue or be sued in the name of the firm, of which such persons are partners at the time of the accrual of the cause of action.
  • Any party to a suit, in such a case, may apply to the court for a statement of the names and addresses of the persons who were at the time of the accrual of the cause of action partners in such firm.
  • Where persons sue or are sued as partners in the name of the firm, it shall suffice if any of the partners may sign, verify or certify any pleadings or other documents required under the Code of Civil Procedure to be signed, verified or certified by the plaintiff or the defendant, as the case may be.
  • If a demand is made as mentioned above, in the case of a suit instituted by the partners in the name of the firm, the plaintiffs shall forthwith declare in writing the names and places of residence of all partners constituting the firm on whose behalf the suit is instituted.
  • Thus, there can be no doubt that a suit brought in the name of the firm is actually one by all the persons who were partners of the firm at the time of the institution of the suit.
  • Thus although the firm is not a legal entity, yet the provisions of Order 30 Rules 1 and 2 C.P.C. enable several persons doing business as partners to sue or be sued in the name of the firm.
  • The effect of a suit instituted in the name of the firm in the manner prescribed by Order 30 Rule 1 C.P.C. is as if the suit is filed by all the persons collectively.
  • Whether the suit is filed by all the partners collectively or by some only of the partners impleading the rest as parties to the suit or whether it is filed in the name of the firm by one or more partners in the manner indicated by Order 30 rule I C.P.C. the conditions prescribed by Section 69(2) must be fulfilled.
  • They are:
    • (1) that the firm must be registered; and
    • (2) that the persons suing are or have been shown in the Register of Firms as partners in the Firm.
  • The second condition requires that the names of the persons suing are presently shown or have been previously shown in the Register of Firm as partners in the firm. That appears to fallow pliantly from the provisions of Section 69(2).
  • The use of the conjunction ‘and’ shows that both the aforesaid conditions must exist together on the date of the institution of the suit.
  • As a matter of fact, these two requirements constitute the conditions precedent to the institution of the suit.
  • It may be pointed out that merely filing a statement under Section 58(1) of the Act in the office of the Registrar of Firms in the prescribed form, giving the particulars of the partnership firm and its partners together with the prescribed fee would not be enough for the fulfillment of the aforesaid conditions.
  • A certificate of registration in the prescribed form should be made available to the partners of the firm and an entry of the statement filed under Section 58(1) should be recorded by the Registrar in the Register of Firms before the institution of the suit.
  • Thus, even if the certificate of registration is made available, yet the second requirement of Sub-section (2) of Section 69 cannot be fulfilled merely by sending or delivering to the Registrar of Firms the statement required by Section 58, but it must also be shown that an entry of the statement so furnished was made by the Registrar in the Register of Firms before the date of the institution of the suit.
  • Similar is the position of a statement sent to the Registrar under Section 65 of the Act intimating the alterations or changes occurring in the constitution of the firm on account of addition, death or retirement of some of the partners.
  • Use of the expression ‘person suing” in Section 69(2) of the Act is significant.
  • Ordinarily a singular used in an enactment includes a plural, but the use of the word ‘persons’ in the aforesaid provision indicates that the legislature intended to refer to all those persons who are the partners of the firm at the time of the institution of the suit.
  • The reason is simple, as all these persons who desire to obtain a decree in their favour in a suit must become plaintiffs in the suit and all those persons against whom a decree is to be passed must similarly be made defendants in the suit.
  • When the suit is filed by or on behalf of the partnership firm, either all the partners of the firm should individually be named as plaintiffs in the suit or some of them maybe named as plaintiffs, while the remaining partners may be named as proforma defendants in the plaint.
  • Another alternative mode has been provided by Order 30 Rule 1 C.P.C. in such cases and the suit may be filed in the name of the firm, which name collectively represents all the partners of the firm at the time of institution of the suit.
  • Such a suit filed in the name of the firm shall be deemed to be a suit on behalf of all the partners of the firm.
  • The other limb of the requirement contained in Sub-section (2) of Section 69 is that all such persons who are partners of the firm at the time of the institution of the suit must be or have been shown in the Register of Firms as partners of the plaintiff firm.
  • The expression “is or have been” refers to such persons whose names were entered in the Register of Firms as partners in the firm at the time of accrual of the cause of action and continues to remain so entered in the Register of Firms at the time of the institution of the suit. (It stands contrary to M/s. Shreeram Finance Corpn. v. Yasin Khan, AIR 1989 SC 1769.)
  • Thus either the persons whose names were entered in the Register of Firms as partners in the firm at the time of the accrual of cause of action and continued to remain so entered therein until the institution of the suit or persons whose names were entered in the Register of Firms as partners of the firm at the time of the institution of the suit could maintain a suit in the name of the firm or on behalf of the firm.
  • It has also been held in some of the cases that all the persons whose names were entered in the Register of Firms on the date of the institution of the suit could file a suit notwithstanding the fact that the names of some other persons also find place in the Register of Firms as partners of the firm, who have either died or have since retired and thus ceased to be partners of the firm at the time of the institution of the suit.
  • The crux of the matter is that the names of all those persons, who continued to hold together as partners of the firm at the time of the institution of the suit must be shown to be entered in the Register of Firms on the date of the institution of the suit.
  • If the relevant entry in the Register of Firms containing some other names of persons who have either died or have retired from the partnership, the same would not affect the maintainability of the suit, in as much as the suit in the name of the firm could be filed only by or on behalf of the surviving partners of the firm.
  • But if the name of one or more of the existing partners of the firm at the time of institution of the suit does not find place in the Register of Firms on that date, then the suit by or on behalf of the partnership firm is not maintainable.
  • It is also clear that no oral evidence can be taken for the purpose of deciding as to who were the partners of the plaintiff firm at the time of the institution of the suit and the names of the persons suing must be shown in the Register of Firm as partners of the plaintiff firm at the time of the institution of the suit, as the suit in the name of the firm is virtually a suit by all the partners of the firm and in order to prove the fact as to who were the partners of the plaintiff firm at the time of the institution of the suit, the only evidence admissible is a certified copy of the relevant entry in the Register of Firms.
  • Thus the only possible interpretation to be placed on the expression ‘are or have been shown in the Register of Firms’ could be the persons suing must either be presently shown in the Register of Firms as partners of the firm at the time of the institution of the suit or they must have been earlier shown in the said Register of Firms as partners of the firm, no other interpretation is possible so as to give a rational meaning to the provision.

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Civil Procedure Code

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Title, ownership and Possession

Principles and Procedure

Land LawsTransfer of Property Act

Evidence Act – General

Contract Act

Easement

Stamp Act

Will

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