# V. SANJEEVARAYA MUDALIAR v. N.A.RAGHAVACHARY

- **Citation:** [1969] 2 S.C.R. 158
- **Court:** Supreme Court of India
- **Decided:** 1968-09-19
- **Source:** https://unisonlegal.in/judgment/supreme-court-of-india/v-sanjeevaraya-mudaliar-v-n-a-raghavachary-4560
- **Pages:** 8

## Headnote

158
V. SANJEEVARAYA MUDALIAR
v.
N.A.RAGHAVACHARY
September 19, 1968
A
[S. M. SIKRl, R. S. BACHAWAT AND K. S. HEGDE, JI.]
B
Madras City Tenant's Protection Act, 21 of 1922, ss. 2, 3, 9 and 12--
Tenant of vacant site in backyard of residential house whether a tenant
of land under s. 2(2)-Written lease deed containing stipulation against
raisinR of permanent structures-Such stioulc.tion whether
one as
to
erection of buildings within meaning of proviso to s. 12-Brecch of such
stipulation by tenant-Tenant whether can take advantage of ss. 2 and
9 thereafter.
The respondent, by a registered lease deed, let to the appellant for
a pe'riod of five years the backyard of a residential house in Madras. The
backyard consisted of vacant land.
According to the lease deed the
appellant was allowed inter alia to boil and dry paddy on the said land
and he was also allowed to erect a temporary shed for keeping the paddy
on condition that while vacating the land he would dismantle the same.
The deed also specifically provided that the appellant "should not erect
any kind of permanent super-structure on the said vacant site so as to
entitle him to claim in future the value thereof." In continuation of his
stipulation the appellant erected permanent super-structures on the land.
On the expiry of the lease of the appellant refused to vacate the land.
The respondent thereupon filed a suit for his eviction. The appellant
claimed protection under the Madras City Tenants' Protection Act, 1921;
Within the prescribed time he filed an application under s. 9 of the Act
asking for an order that the respondent be directed to sell the land for
a price to be fixed by the court. The trial court decreed the respondent's
suit.
The first appellate court rever&ed the decree of the trial court but
the High Court restored it.
In appeal by special leave to this Court the
questions t·hat fell for determination were : (i) Is the tenant of a vacant
site in the backyard of a residential house a tenant of land within the
purview of s. 2(2) of the Madras City Tenants' Protection Act, 1921?
(ii) Having regard to the proviso to s. 12 is such a tenant entitled to
the protection of ss. 3 and 9 of the Act in a case when he has erected
buildings on the land in contravention of an express stipulated in · a
registered deed·?
HELD : (i) If the respondent had let the residential building together
with its appurtenant land the tenancy would not be a tenancy of land
within the meaning of the Ac\t.
But the respondent did not let the
building with land appurtenant thereto. He retained the building and
let the land separately.
The letting was of land and nothing else. The
appellant was not a tenant of a building as defined in s. 2 ( 1) either before or after its amendment by Madras Act XIII of 1960. He was a tenant
of land as defined ins. 2(2). [162 A.CJ
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(ii) (a) , Under s. 3 a tenant on ejectment is entitled to be paid as
compensation the value of any
building erected
by him.
A
tenant
entitled to
compensation
under s. 3 and against whom a
suit for
ejectment has been instituted is entitled to purchase the whole or part
H
•
'
of the land by invoking the procedure under s. 9. The effect of the
<:: ·•
main part of s. 12 is that nothing in any contract made by a tenant takes
~way or limits his ri~ und~r ss. 3 and
9,
The proviso
to s, 12,
•
•
v. s. MUDALIAR V. N. A. RAGHAVACHARY (Bachawat, .T.) !59
however, saves stipulations as
to erections of
buildings
made by a
A
tenant in a registered writing. [162 D-EJ
B
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(b) A stipulation as to the erection of buildings made orally or in
an unregistered writing is not protected by the proviso and a tenant erecting a building in breach of the covenant is entitled to the benefits of ss. 3
and 9. [162 E-F]
R. V. Naidu v. Naraindas, [1966] 1 S.C.R. 110 and Naraindos v.
Naidu, (1963) 1 M.L.J. 140, referred to.
( c) A stipulatiOn for giving vacant land after demolition of the building which the tenant has b~en authorised to construct thereon is n

## Text

158
V. SANJEEVARAYA MUDALIAR
v.
N.A.RAGHAVACHARY
September 19, 1968
A
[S. M. SIKRl, R. S. BACHAWAT AND K. S. HEGDE, JI.]
B
Madras City Tenant's Protection Act, 21 of 1922, ss. 2, 3, 9 and 12--
Tenant of vacant site in backyard of residential house whether a tenant
of land under s. 2(2)-Written lease deed containing stipulation against
raisinR of permanent structures-Such stioulc.tion whether
one as
to
erection of buildings within meaning of proviso to s. 12-Brecch of such
stipulation by tenant-Tenant whether can take advantage of ss. 2 and
9 thereafter.
The respondent, by a registered lease deed, let to the appellant for
a pe'riod of five years the backyard of a residential house in Madras. The
backyard consisted of vacant land.
According to the lease deed the
appellant was allowed inter alia to boil and dry paddy on the said land
and he was also allowed to erect a temporary shed for keeping the paddy
on condition that while vacating the land he would dismantle the same.
The deed also specifically provided that the appellant "should not erect
any kind of permanent super-structure on the said vacant site so as to
entitle him to claim in future the value thereof." In continuation of his
stipulation the appellant erected permanent super-structures on the land.
On the expiry of the lease of the appellant refused to vacate the land.
The respondent thereupon filed a suit for his eviction. The appellant
claimed protection under the Madras City Tenants' Protection Act, 1921;
Within the prescribed time he filed an application under s. 9 of the Act
asking for an order that the respondent be directed to sell the land for
a price to be fixed by the court. The trial court decreed the respondent's
suit.
The first appellate court rever&ed the decree of the trial court but
the High Court restored it.
In appeal by special leave to this Court the
questions t·hat fell for determination were : (i) Is the tenant of a vacant
site in the backyard of a residential house a tenant of land within the
purview of s. 2(2) of the Madras City Tenants' Protection Act, 1921?
(ii) Having regard to the proviso to s. 12 is such a tenant entitled to
the protection of ss. 3 and 9 of the Act in a case when he has erected
buildings on the land in contravention of an express stipulated in · a
registered deed·?
HELD : (i) If the respondent had let the residential building together
with its appurtenant land the tenancy would not be a tenancy of land
within the meaning of the Ac\t.
But the respondent did not let the
building with land appurtenant thereto. He retained the building and
let the land separately.
The letting was of land and nothing else. The
appellant was not a tenant of a building as defined in s. 2 ( 1) either before or after its amendment by Madras Act XIII of 1960. He was a tenant
of land as defined ins. 2(2). [162 A.CJ
c
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F
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(ii) (a) , Under s. 3 a tenant on ejectment is entitled to be paid as
compensation the value of any
building erected
by him.
A
tenant
entitled to
compensation
under s. 3 and against whom a
suit for
ejectment has been instituted is entitled to purchase the whole or part
H
•
'
of the land by invoking the procedure under s. 9. The effect of the
<:: ·•
main part of s. 12 is that nothing in any contract made by a tenant takes
~way or limits his ri~ und~r ss. 3 and
9,
The proviso
to s, 12,
•
•
v. s. MUDALIAR V. N. A. RAGHAVACHARY (Bachawat, .T.) !59
however, saves stipulations as
to erections of
buildings
made by a
A
tenant in a registered writing. [162 D-EJ
B
c
D
E
(b) A stipulation as to the erection of buildings made orally or in
an unregistered writing is not protected by the proviso and a tenant erecting a building in breach of the covenant is entitled to the benefits of ss. 3
and 9. [162 E-F]
R. V. Naidu v. Naraindas, [1966] 1 S.C.R. 110 and Naraindos v.
Naidu, (1963) 1 M.L.J. 140, referred to.
( c) A stipulatiOn for giving vacant land after demolition of the building which the tenant has b~en authorised to construct thereon is not
one as to the erection of buildings within the proviso to s. 12. Therefore
in the present case the stipulation that the appellant could erect a temporary shed on condition that while vacating the land he would dismantle
the same was not protected by the proviso to s. 12. [164 C-D]
Vajrapani Naidu v. New Theatre Carnatic Talkies, [1964] 6 S.C.R.
1015, relied on.
Vajrapuri v. New Theatres Carnatic Talkies, (1959) 2 M.LJ. 469,
477-8, referred to.
( d) But in the present case the lease deed also contained an express
stipulation that the appellant would not erect permanent structures of
any kind so as to entitle him to claim the future value thereof.
This
stipulation was clearly one as to the erection of buildings. [164 E]
In contravention of the stipulation as to the erection of buildings in
the registered deed the appellant erected permanent structures on the
land after the date of the lease. The effect of the proviso to s. 12 is that
nothing in the Act affects the stipulation. Sections 3 and 9 are subject
to and controlled by s. 12. The stipulation overrides the tenant's right
under s. 3. If the tenant erects a permanent structure in contravention
of the stipulation he is not entitled to any compensation under s. 3.
As
he is not entitled to any compensation under s. 3 he cannot claim the
benefit of s. 9. The High Court rightly held that the appellant was not
entitled to the benefit of s. 9. [164 C-165 BJ
F
CIVIL APPELLATE JURISDICTION:
Civil Appeal No. 776 of
G
H
1966.
Appeal by special leave from the judgment and order dated
April 26, 1965 of the Madras High Court in A.A.O. No. 1 of
1962.
S. C. Manchanda and T. A. Ramachandran, for the appellant.
B. Sen, M. Srinivasan and R. Thiagarajan, for the respondent.
The Judgment of the Court was delivered by
Bachawat, J. The respondent is the owner of premises No.
8, Brahmin Street, Saidapet, Madras.
By a registered lease dated
Novemb~r 21, 1952 he let to the appeUl'\nt the backyard of the
•
160
SUPREME COURT REPORTS
[l 969] 2 S.C.R.
premises for a term of 5 years.
The backyard consisted of vacant
land.
The lease deed authorized the appellant to use land for
boiling and drying paddy, to use the gate in the western compound wall for ingress and egress, to erect an opening in the wall
for bringing in and taking out the paddv. and to erect a tempo~
rary shed for keeping the paddy on condition that while vacating
the land he would dismantle the same. The deed specifically provided that the appellant "should not erect any kind of permanent
super-structures on the said vacant site so as to entitle him to
claim in future the value thereof," except such facilities as were
necessary for drying paddy at his own expense. In contravention .
of this stipulation and without any authority from the respondent,
the appellant erected permanent super-structures on the land. On
the expiry of the lease the appellant refused to vacate the land.
On March 12. 1959 the respondent filed a suit for his eviction.
The appellant claimed protection under the Madras Citv Tenants,
Protection Act. 1921 (Act III of 1922). Before filing his written
statement on February 15, 1960. he filed
an application under
sec. 9 of the Act asking for an order that the respondent be directed to sell the land for a price to be fixed by the Court.
The trial
Court decreed the ~ult on August 25, 1960. The first appellate
Court reversed the decree and dismissed the suit. The High Court
on second appeal restored the decree of the trial Court. The 'present appeal has been filed after obtaining special leave.
The Courts below concurrently found that the appellant had
constructed perm'ammt super-structures on the vacant land after
November 21, 1952 without any authority from the respondent
and in contravention of the stipulation in the registered lease.
This finding is not challenged before us.
In view of the fact that
the construction was in contravention of the stipulation in the
lease, the Trial Court and the High Court held that the appellant
was not entitled to the protection of s. 9 of the Act; but the first
appellate Court held that the appellant was nevertheles;; entitled
to such protection. The Trial Court and the High Court held
that the vacant site in the backvard being appurtenant to a house
was building and not land. and the appellant not being a tenant
of land was not protected by the Act; but the first appellate Court
held that the vacant site was land and the tenancy was within the
purview of the Act.
The appellant challenges the findings of the
Hio:h Court on both points.
The following two questions arise
for determination in this appeal.
( 1) Is the tenant of a vacant
site in the backvard of a residential house >l tenant of land within
the purview of the Madras Citv Tenants' Protection Act, 1921 ?
(2) Having regard to the proviso to sec. 12 is such a tenant
entitled to the protection of ss. 3 and 9 of the Act in a case where
he has erected buildings on the land in contravention of an express
stipulated in a registered lease ?
A
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B
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v. s. MUDALIAR v. N. A. RAGHAVACHARY (Bachawat, !.) 161
To appreciate the points arising in this case it is necessary to
refer to the relevant provisions of the Madras City Tenants Protection Act, 1921. The Act was passed with a view to give protection to tenants who in certain areas had constructed buildings
on others' lands in the hope that they would not be evicted so long
as they paid fair rent for the land. The Act was amended from
time to time. It extends to the city of Madras and other notified
areas and applies only to tenancies of land created before certain
specified dates.
( s. 1).. It is common case before us that the
Act extends to the area where the disputed land is situated. Section 2 is the definition section.
"Building" is defined in s. 2 (1)
to include any building, hut or other structure whether of masonry,
bricks, wood, metal or any other material whatsoever used (i)
for residential or non-residential purposes in certain specified
areas and (ii) for residential purposes only, in any other area and
includes the appurtenances thereto.
It may be mentioned that
"building" was not defined to include the appurtenances thereto
in any area under sec. 2(1) before its amendment on July 27,
1960 by Madras Act III of 1960.
"Land" does not include
buildings, [s. 2(2)]. "Landlord" means any person owning any
land, [s. 2(3)].
"Tenant" in relation to any land means a person
liable to pay rent in respect of such land under a tenancy express
or implied and includes any such person who continues in possession of the land after the determination of the tenancy agreement,
[s. 2(4)]. Section 3 provides that every tenant shall on ejectment be entitled to be paid as compensation the value of any
building which may have been erected by him and for which
compensation has not alreadv been paid.
Section 9 ( 1) provides
that a tenant who is entitled to compensation under sec. 3 and
against whom a suit in ejectment has been instituted mav within
the prescribed time apply to the Court for an order that the landlord should be directed to sell the whole or part of the land for a
price to be fixed by the Court.
Section 10 provides that sec. 9
shall aμply to suits in ejectment which are. pending before certain
specified dates.
Section 11 requires 3 months notice in writing
before the institution of a suit in ejectment against a tenant.
Section 12 provides that "nothing in any contract made bv a
tenant shall take away or limit his rights under this Act, provided
that nothing herein contained shall affect any stipulations made
by the tenant in writing registered as to the erection of bui!dinirs,
in so far as they relate to buildings erected after the date of the
contract." Section 13 provides that in its application to the city
of Madras and to other notified areas the Transfer of Property
Act shall to the extent necessary to give effect to the provisions
of the Act be deemed to have been repealed or modifid.
The :first question is whether the appellant is a tenant of land
as contemplated by the Madras City Tenants Protection Act, 1921.
162
SUPREME COURT REPORTS
[ 1969] 2 s.c.R
Before the execution of the lease deed dated November 21, 1952
the land in the backyard was occupied with and was appurtenant
to the residential house at No. 8, Brahmin Street. It may be conceded that if the respondent had let the residential building together with its appurtenant land, the tenancy would not be a tenancy
of land within the purview of the Act.
But the respondent did
not let the building with the land appurtenant thereto. He retained the building and let the land separately.
The letting was of
land and nothing else.
The appellant is not a tenant of a building as defined in sec. 2 (I ) either before or after its amendment
by Madras Act XIII of 1960.
He is a tenant of land as defined
in s. 2 (2). The High Court was in error in holding that he was
a tenant of building.
l he next question is whether having regard to the proviso to
sec. 12, the appellant is entitled to the benefits of secs. 3 and 9 in
view of the fact that he constructed buildings in contravention of
the express stipulation in the registered lease.
Under sec. 3 a
tenant on ejectment is entitled to be paid as compensation the
value of any building erected by him.
A tenant entitled to compensation under sec. 3 and against whom a suit for ejectment has
been instituted is entitled to purchase the whole or part of the land
by invoking the procedure under sec. 9.
The effect of the main
part of sec. 12 is that nothing in any contract made by a tenant
takes away or limits his rights under secs. 3 and 9.
The proviso
to sec. 12 saves stipulations as to the erection of buildings made
by a tenant in a registered writing.
But a stipulation as to the
erection of buildings made orally or in an unregistered writing is
not protected by the proviso and a tenant erecting a building in
breach of the covenant is entitled to the benefits of secs. 3 and 9.
In R. V. Naidu v. Naraindas(') a piece of vacant land was Jet
under an unregistered instrument of lease which provided that the
tenants would not raise any building in the vacant site.
The
tenants erected a building on the land in breach of the covenant.
This Court held reversing the decision of the High Court in
Naraindas v. V. Naidu(') that the tenants against whom a suit
for ejectment had been instituted was entitled to the benefits of
secs. 3 and 9.
The Court pointed out that as the covenant not
to build was contained in an -unregistered lease, the proviso to sec.
12 had no application · and the landlord could 'not rely on the
covenant.
In the present case a registered lease contains a stipulation by
the tenant that he would not build any permanent structure on
the land so as to entitle him to claim in futnre the value thereof.
The point in issue is whether this is a stipulation as to the erection
of building. within the proviso to sec. 12. In Vajrapuri v. New
(I) (1966] I S.C.R. 110.
al [1963] I M.L.J. !40,
"
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B
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A
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B
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v. s. MUDALIAR v. N. A. RAGHAVACHARY (Bachawat, J.) 163
Theatres Carnatic Talkies Ltd.( 1 ) the tenants obtained a lease of
land for constructing a building suitable for use as a theatre. The
registered lease deed provided that on the expiry of the lease the
tenants would surrender possession of the land after dismantling
and removing the building constructed by him.
The Madras
High Court held that this stipulation was not one as to the erection of buildings and was not protected by the proviso to sec. 12
and that the tenants against whom a suit for ejectment had been
instituted could claim the protection of secs. 3 and 9. Ganapatia
Pillai J. observed :
"In our opinion, the application of
the Proviso
should be limited to those cases where the stipulations
in the contract relate to erection of the building, such
as the size of the building, the cost of the building and
the design of the building or other cognate matters."
He added:-
"We are not concerned here with a case of erection of buildings contrary to the stipulations contained
in the written contract, to which the tenant was
a
party.
How far, in such a case, the tenant would be
protected "from foregoing his rights under the impugned
Act does not arise for our consideration ... "
This decision was affirmed by this Court by a majority decision
in Vajrapani Naidu v. New Theatre Carnatic Talkies(').
Shah
J. speaking for the majority said at pp. 1022-23 :-
"A covenant in a lease which is duly registered that
the tenant shall on expiry of the lease remove the "building constructed by him and deliver vacant possession,
is undoubtedly a stipulation relating to the building,
but it is not a stipulation as to the erection of building
.... Having regard to the object of the Act, and the
language used by the legislature, the exception must be
strictly construed, and a stinulation as to the erection of
buildings would not, according to the ordinary meaning
of the words used. encompass a stipulation to vacate
and deliver possession of the land on the expiry of the
lease without claiming to enforce the statutory rights
conferred upon the tenant by s. 9.
The stipulations not
protected in s. 12 are only those in writing registered
and relate to erection of buildings such as restrictions
about the size and nature of the building constructed,
the building materials to be used therein and the purpose for which the building is to be utilised."
(I) [1959) 2 M.L.J. 469, 477-ll.
(2) (19641 6 S.C.R. 1015.
164
SUPREME COURT REPORTS
[1969] 2 S.C.R.
The minority was of the opinion that the stipulation was protected by the proviso to sec. 12.
Ayyangar J. speaking for the
minority said at p. 1032 :-
"If a stipulation forbidding erection of buildings
and requiring their removal before surrendering possession of the site is conceded to be one in respect of
erection of building-as has to be conceded-it is not
possible to accept the construction that stipulation for
the removal of buildings which the lessee is permitted to
erect and keep in the site only for the duration of the
tenancy is any the less one in respect of erection of
buildings."
Having regard to this decision it must be held that a stipulation
for giving vacant possession of the land after demolition of the
building which the tenant has been authorised to construct thereon is not one as to the erection of buildings within the proviso
to s. 12. In the present case the registered lease deed authorised
the appellant to erec~ a temporary shed on condition that while
vacating the land he would dismantle the same.
The stipulation
for vacating the land after dismantling the temporary shed is not
protected by the proviso to s. 12. Had the appe~ant constructed
a temporary shed he could in spite of the stipulation claim the
protection of ss. 3 and 9.
In the present case. the registered lease deed also contained
an express stipulation that the appellant would not erect permanent structures of any kind on the land so as to entitle him to claim
in future the value thereof. This stipulation is clearly one as to
.the erection of buildings. In common parlance a stipulation
forbidding erection of building is understood to be one in respect
of the erection of building.
The popular meaning furnishes the
key to the interpretation of the proviso to sec. 12.
J,f a stipulation concerning the size and nature of the building to be erected
on the land is one as to the erection of buildin~, a fortiori a
stipulation forbidding the erection of buildings of a uarticular kind
· altogether is one as to the erection of buildings with.in the proviso
to.sec. 12.
·
·
In contravention of the stipulation, as to the erection of buildings, in the registered lease deed the appellant erected permanent
structures on the land after the date of the lease. The question
is whether the appellant is entitled to compensation for the structures under sec; 3 and to the benefits of sec. 9.
The effect of the
uroviso to sec. 12 is that nothing in the Act affects the stipulation
Sections 3 and 9 are subiect to and controlled by the proviso to
sec. 12.
Section 3 provides that a tenant shall on ejectment be
entitled to be paid as compensation the value of any buildin12;
erected by him.
The right conferred on the tenant by sec. 3 is
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v. s. MUDALIAR V. N. A, RAGHAVACHARY (Bachawat, 1.) 165
controlled by the stipulation in the registered lease deed that he
shall not erect pennanent structures of any kind on the land so as
to entitle him to claim in future the value thereof.
The stipulation overrides the tenant's rights under s. 3. If the tenant erects
a pennanent structure in contravention of the stipulation he is not
entitled to any compensation under sec. 3.
As he is not entitled
to any compensation under sec. 3 he cannot claim the benefit of
sec. 9.
The High Court rightly held that the appellant was not
entitled to the protection of sec. 9.
In the result, the appeal is dismissed with costs.
G.C .
Appeal dismissed.