UNION OF INDIA Vs VASAVI CO-OP. HOUSING SOCIETY LTD.
Bench: K.S. RADHAKRISHNAN,A.K. SIKRI
Case number: C.A. No.-004702-004702 / 2004
Diary number: 25234 / 2002
Advocates: B. V. BALARAM DAS Vs
SRIDHAR POTARAJU
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REPORTABLE
IN THE SUPREME COURT OF INDIA
CIVIL APPELLATE JURISDICTION
CIVIL APPEAL NO.4702 OF 2004
Union of India and others … Appellants
Versus
Vasavi Co-op. Housing Society Ltd. and others … Respondents
J U D G M E N T
K.S. Radhakrishnan, J.
1. The Vasavi Co-op. Housing Society Ltd., the first
respondent herein instituted a suit No.794 of 1988 before
the City Civil Court, Hyderabad, seeking a declaration of
title over land comprising 6 acres 30 guntas in Survey
No.60/1 and 61 of Kakaguda village and recovery of the
vacant possession from Defendant Nos.1 to 3 and 7, the
appellants herein, after removal of the structure made
therein by them. The plaintiff has also sought for an
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injunction restraining the defendants from interfering with
the above-mentioned land and also for other
consequential refliefs. The City Civil Court vide its
judgment dated 31.07.1996 decreed the suit, as prayed
for, against which the appellants preferred C.C.C.A.
No.123 of 1996 before the High Court of Andhra Pradesh
at Hyderabad. The High Court also affirmed the judgment
of the trial Court on 6.9.2002, but noticed that the
appellant had made large scale construction of quarters
for the Defence Accounts Department, therefore, it would
be in the interest of justice that an opportunity be given to
the appellants to provide alternative suitable extent of
land in lieu of the scheduled suit land, for which eight
months’ time was granted from the date of the judgment.
Aggrieved by the same, the Union of India and others have
filed the present appeal.
FACTS
2. The plaintiff’s case is that it had purchased the land
situated in Survey Nos.60, 61 and 62 of Kakaguda Village
from Pattedar B.M. Rama Reddy and his sons and others
during the year 1981-82. The suit land in question forms
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part of Survey Nos.60 and 61. The suit land in question
belonged to the family of B. Venkata Narasimha Reddy
consisting of himself and his sons Anna Reddy, B.V. Pulla
Reddy and B.M. Rama Reddy and Anna Reddy’s son
Prakash Reddy. Land in old Survey No.53 was allotted to
Rama Reddy vide registered family settlement and
partition deed dated 11.12.1939 (Ex.A2). In the
subsequent re-settlement of village (Setwar of 1353
FASLI), the land in Survey No.53 was re-numbered as
Survey No.60, 61 and 62. Ever since the allotment in the
family partition of the above-mentioned land, vide the
family partition deed dated 19.03.1939, Rama Reddy had
been in exclusive possession and enjoyment and was
paying land revenue. Rama Reddy’s name was also
mutated in the Pahanies.
3. Plaintiffs further stated that the first defendant had
it’s A.O.C. Centre building complex in Tirumalagiri village
adjoining the suit land Survey No.60 of Kakaguda village.
The first defendant had also requisitioned 4 acres and 28
guntas in Survey No.60 of Kakaguda Village in the year
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1971 along with the adjoining land in Tirumalagiri for
extension of A.O.C. Centre. Further, it was stated that 6 th
Defendant took possession of the above-mentioned land
and delivered possession of the same to other defendants.
The 3rd Defendant later vide his letter dated 18.12.1979
sent a requisition for acquisition of 4.38 guntas in Surevy
No.60 for the extension of A.O.C. Centre. Notification was
published in the official Gazette dated 18.09.1980 and a
declaration was made on 30.06.1981 and compensation
was awarded to Rama Reddy vide Award dated
26.07.1982.
4. The Plaintiffs, as already stated, had entered into
various sale deeds with Rama Reddy during the year
1981-82 by which land measuring 13 acres and 08 guntas
in Survey No.60, 11 acres and 04 guntas in Survey No.61
and 17 acres and 20 guntas in Survey No.62 were
purchased, that is in all 41 acres and 32 guntas. Plaintiffs
further stated that the land, which was purchased by it
was vacant, but persons of the Defence Department
started making some marking on the portions of the land
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purchased by the plaintiff, stating that a substantial
portion of the land purchased by the plaintiff in Survey
No.60/1 and 61 belonged to the Defence Department and
treated as B-4 in their records. Plaintiff then preferred an
application dated 12.09.1983 to the District Collector
under the A.P. Survey and Boundaries Act for demarcation
of boundaries. Following that, Deputy Director of Survey
issued a notice dated 21.01.1984 calling upon the plaintiff
and 3rd Defendant to attend to the demarcation on
25.01.1984. Later, a joint survey was conducted. The 3rd
Defendant stated that land to the extent of 4 acres and 35
guntas in Survey No.60 and 61 corresponds to their G.L.R.
(General Land Register) No.445 and it is their land as per
the record. The Deputy Director of Survey, however,
stated that lands in Survey Nos.60 and 61 of Kakaguda
village are patta lands as per the settlement records and
vacant, abutting Tirumalagiri village boundaries to Military
Pillers and not partly covered in Survey No.60. Plaintiff
later filed an application for issuing of a certificate as per
the plan prepared by the Revenue Records under Section
19(v) of the Urban Land Ceiling Act. Plaintiff further stated
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that pending that application, officers of Garrison
Engineers, on the direction of the 3rd Defendant, illegally
occupied land measuring 2 acres and 29 guntas in Survey
No.60 and 4 acres and 01 guntas in Survey No.61. Thus, a
total extent of land 6 acres and 30 guntas was encroached
upon and construction was effected despite the protest by
the plaintiff. Under such circumstances, the plaintiff
preferred the present suit, the details of which have
already been stated earlier.
5. The 3rd Defendant filed a written statement stating
that an area of land measuring 7 acres and 51 guntas, out
of Survey No.1, 60 and 61 of Kakaguda village comprising
G.L.R. Survey No.445 of Cantonment belongs to the first
Defendant, which is locally managed and possessed by
Defendant No.3 being local representative of Defendant
No.1 and D-3 and is also the custodian of all defence
records. Further, it was also stated that, as per the G.L.R.,
the said land was classified as B-4 and placed under the
management of Defence Estates Officer. It was also
stated that the suit land is part of review Survey Nos.60
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and 61 and the plaintiff is wrongly claiming that the said
land was purchased by it. Further, it was also stated that
the plaintiff is threatening to encroach upon another 6
guntas of land alleged to be situated in Survey Nos.60/1
and 61. It has been categorically stated that, as per the
records maintained by the 3rd Defendant, land measuring
7 acres and 51 guntas, forming part of G.L.R. Survey
No.445 of the Cantonment is part of Survey Nos.1, 60 and
61 of Kakaguda village. It is owned, possessed and
enjoyed by Defendant Nos.1 to 4 and 7.
6. The plaintiff, in order to establish its claim, examined
PWs 1 to 4 and produced Exs. A-1 to A-85 and Exs. X-1 to
X-10 besides Exs. A-86 to A-89 on behalf of DW1. On
behalf of the defendants DW1 was examined and Exs D-1
to D-7 are produced.
7. The primary issue which came up for consideration
before the trial court was whether the plaintiff has got
ownership and possession over 6 acres and 30 guntas
covered by Survey No.60/1 and 61 of Kakaguda village for
which considerable reliance was placed on the settlement
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record (Setwar Ex.A-3 of 1353 Fasli). On the other hand,
the defendants placed considerable reliance on G.L.R.
Survey No.445 of the Cantonment which is part of Survey
No.1, 60 and 61 of Kakaguda village, wherein, according
to the defendants, the suit land falls. PW2, the Deputy
Inspector of Survey stated, according to Setwar, land in
Survey Nos.60, 61 and 62 is patta land of Prakash Reddy
and others and such Survey numbers corresponds to Old
Survey No.53. The evidence of PW-3 and 4 also states
that the land is covered by old Survey No.53 which figures
in Survey Nos.60, 61 and 62. Ext. A-3 Setwar, is a
settlement register prepared by the Survey Officer at the
time of revised survey and settlement in the year 1358
Fasli in which the names of the predecessors in title of the
plaintiff are shown as pattedars. In other words, Ex-A-3 is
the exhibit of rights and title of plaintiff’s predecessors in
title.
8. Defedants, as already indicated, on the other hand,
pleaded that the total extent of Survey No.53 was only 33
acres and 12 guntas and if that be so, after sub-division
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the extent of sub-divided survey numbers would also
remain the same, but the extent of sub-divided Survey
Nos.60, 61 and 62 were increased to 41 acres and 32
guntas in the revenue records without any notice to the
defendants which according to the defendants, was
fraudulently done by one Venkata Narasimha Reddy, the
original land owner of Survey No.53 of Kakaguda village,
who himself was the Patwari of Kakaguda village. Further,
it was the stand of the Defendants that in exercise of
powers under The Secunderabad and Aurangabad
Cantonment Land Administration Rules, 1930, the G.LR. of
1933 was prepared by Captain O.M. James after making
detailed enquiries from the holder of occupancy rights as
well as general public. Further, it is also stated that
certain land within the villages were handed over by the
then Nizam to British Government for military use. Land
in question measuring 7 acres and 51 guntas in G.L.R.
1933 at Survey No.581 was used by the British
Government as murram pits and it was classified as Class-
C land vested in the Cantonment Authority. G.L.R. 1933
was re-written in the year 1956 in view of the provisions of
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Rule 3 of Cantonment Land Administration Rules, 1937
and said Survey No.581 was re-written as G.L.R. Survey
No.445. Further, in view of the classification of the land,
as stipulated in Cantonment Land Administration rules,
1937, land pertaining to G.L.R. Survey No.445 was re-
classified as B-4 (vacant land) reserved for future military
purposes and management was transferred from
cantonment authority to Defence Estate.
9. The above-mentioned facts would indicate that the
plaintiff traces their title to the various sale deeds, Ext.A-3
Setwar of 1353 Fasli and the oral evidence of the survey
officials and the defendants claim title and possession of
the land on the basis of the G.L.R. The question that falls
for consideration is whether the evidence adduced by the
plaintiff is sufficient to establish the title to the land in
question and to give a declaration of title and possession
by the civil court.
10. Shri Vikas Singh, learned senior counsel appearing
for the appellants submitted that G.L.R. 445 measuring an
area of 7 acres and 51 guntas is classified as B-4 and
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placed under the management of the Defence Estate
Officer. Column 7 of the G.L.R. would indicate that the
landlord is the Central Government. Out of 7 acres and 51
guntas, land admeasuring 6 acres has been handed over
to Defence Accounts Department for construction of
Defence Staff Quarters as per survey No.445/A, as per the
records as early as in 1984. Further, it was pointed out
that the appellant had already constructed approximately
300 quarters in 6 acres of land. Learned senior counsel
submitted that since the extent of land mentioned in old
Survey No.53 as well as in the settlement and partition
deed, do not tally to the extent of land mentioned in Ext.A-
3 and burden is heavy on the side of the plaintiff to show
and explain as to how the registered family settlement
and partition deed did not take place in the disputed land.
Learned senior counsel also submitted that the High Court
has committed an error in ignoring the G.L.R. produced by
the defendants, even though there is no burden on the
defendants to establish its title in a suit filed by the
plaintiff for declaration of title and possession.
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11. Shri P.S. Narasimha, learned senior counsel and Shri
Basava Prabhu Patil, learned senior counsel appearing for
the respondents submitted that the city civil court as well
as the High Court have correctly appreciated and
understood the legal position and correctly discarded the
entries made in the G.L.R. Learned senior counsel
submitted that the correctness and evidentiary value of
G.L.R. entries have to be appreciated in the context of the
history of the Secunderabad Cantonment. Reference was
made to the provisions of Cantonment Act, 1924 and it
was pointed out that the Secunderabad and Aurangabad
Cantonment Land Administration Rules, 1930 do not apply
to the Kakaguda village. Learned senior counsel have also
referred to Ex.A6, the Sesala Pahani for the year 1955-58,
of Kakaguda village, Ex.A7, the Pahani Patrika for the year
1971-72, Ex.A8, the Pahani Patrika for the year 1972-73
and submitted that they would indicate that Methurama
Reddy, the predecessor in title, was the Pattedar of Survey
Nos.60 and 61 of Kakaguda village. It was pointed out that
the entries made therein have evidentiary value. Learned
counsel pointed out that the Settlement Register prepared
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under the Statutes and Pahanies maintained under the
Hyderabad Record of Rights in Land Regulations of 1358,
Fasli have considerable evidentiary value. Further, it was
also pointed out that the land in question is pot kharab
land, which is not normally treated as land in Section 3(j)
of Ceiling Act and hance may not figure in a Settlement or
Partition Deed, hence not subjected to any revenue
assessment. Learned senior counsel submitted that the
plaintiff has succeeded in establishing its title to the
property in question, as was found by the city civil court
as well as the High Court which calls for no interference by
this Court under Article 136 of the Constitution.
12. It is trite law that, in a suit for declaration of title,
burden always lies on the plaintiff to make out and
establish a clear case for granting such a declaration and
the weakness, if any, of the case set up by the defendants
would not be a ground to grant relief to the plaintiff.
13. The High Court, we notice, has taken the view that
once the evidence is let in by both the parties, the
question of burden of proof pales into insignificance and
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the evidence let in by both the parties is required to be
appreciated by the court in order to record its findings in
respect of each of the issues that may ultimately
determine the fate of the suit. The High Court has also
proceeded on the basis that initial burden would always be
upon the plaintiff to establish its case but if the evidence
let in by defendants in support of their case probabalises
the case set up by the plaintiff, such evidence cannot be
ignored and kept out of consideration.
14. At the outset, let us examine the legal position with
regard to whom the burden of proof lies in a suit for
declaration of title and possession. This Court in Maran
Mar Basselios Catholicos v. Thukalan Paulo Avira
reported in AIR1959 SC 31 observed that “in a suit for
declaration if the plaintiffs are to succeed, they must do so
on the strength of their own title.” In Nagar Palika, Jind
v. Jagat Singh, Advocate (1995) 3 SCC 426, this Court
held as under:
“the onus to prove title to the property in question was on the plaintiff. In a suit for ejectment based on title it was incumbent
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on the part of the court of appeal first to record a finding on the claim of title to the suit land made on behalf of the plaintiff. The court is bound to enquire or investigate that question first before going into any other question that may arise in a suit.”
15. The legal position, therefore, is clear that the plaintiff
in a suit for declaration of title and possession could
succeed only on the strength of its own title and that could
be done only by adducing sufficient evidence to discharge
the onus on it, irrespective of the question whether the
defendants have proved their case or not. We are of the
view that even if the title set up by the defendants is
found against, in the absence of establishment of
plaintiff’s own title, plaintiff must be non-suited.
16. We notice that the trial court as well as the High
Court rather than examining that question in depth, as to
whether the plaintiffs have succeeded in establishing their
title on the scheduled suit land, went on to examine in
depth the weakness of the defendants title. Defendants
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relied on the entries in the GLR and their possession or re-
possession over the suit land to non-suit the Plaintiffs.
The court went on to examine the correctness and
evidentiary value of the entries in the GLR in the context
of the history and scope of Cantonment Act, 1924, the
Cantonment Land Administration Rules, 1925 and tried to
establish that no reliance could be placed on the GLR.
The question is not whether the GLR could be accepted or
not, the question is, whether the plaintiff could prove its
title over the suit property in question. The entries in the
GLR by themselves may not constitute title, but the
question is whether entries made in Ext.A-3 would confer
title or not on the Plaintiff.
17. This Court in several Judgments has held that the
revenue records does not confer title. In Corporation of
the City of Bangalore v. M. Papaiah and another
(1989) 3 SCC 612 held that “it is firmly established that
revenue records are not documents of title, and the
question of interpretation of document not being a
document of title is not a question of law.” In Guru
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Amarjit Singh v. Rattan Chand and others (1993) 4
SCC 349 this Court has held that “that the entries in
jamabandi are not proof of title”. In State of Himachal
Pradesh v. Keshav Ram and others (1996) 11 SCC 257
this Court held that “the entries in the revenue papers, by
no stretch of imagination can form the basis for
declaration of title in favour of the plaintiff.”
18. The Plaintiff has also maintained the stand that their
predecessor-in-interest was the Pattadar of the suit land.
In a given case, the conferment of Patta as such does not
confer title. Reference may be made to the judgment of
this Court in Syndicate Bank v. Estate Officer &
Manager, APIIC Ltd. & Ors. (2007) 8 SCC 361 and
Vatticherukuru Village Panchayat v. Nori
Venkatarama Deekshithulu & Ors. (1991) Supp. (2)
SCC 228.
19. We notice that the above principle laid down by this
Court sought to be distinguished by the High Court on the
ground that none of the above-mentioned judgments,
there is any reference to any statutory provisions under
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which revenue records referred therein, namely, revenue
register, settlement register, jamabandi registers are
maintained. The High Court took the view that Ext.A-3 has
evidentiary value since the same has been prepared on
the basis of Hyderabad record of Rights in Land
Regulation, 1358 Fasli. It was also noticed that column 1
to 19 of Pahani Patrika is nothing but record of rights and
the entries in column 1 to 19 in Pahani Patrika shall be
deemed to be entries made and maintained under
Regulations.
20. We are of the view that even if the entries in the
Record of Rights carry evidentiary value, that itself would
not confer any title on the plaintiff on the suit land in
question. Ext.X-1 is Classer Register of 1347 which
according to the trial court, speaks of the ownership of the
plaintiff’s vendor’s property. We are of the view that
these entries, as such, would not confer any title.
Plaintiffs have to show, independent of those entries, that
the plaintiff’s predecessors had title over the property in
question and it is that property which they have
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purchased. The only document that has been produced
before the court was the registered family settlement and
partition deed dated 11.12.1939 of their predecessor in
interest, wherein, admittedly, the suit land in question has
not been mentioned.
21. Learned senior counsel appearing for the
respondents submitted that the land in question is pot
kharab and since no tax is being paid, the same would not
normally be mentioned in the partition deed or settlement
deed. The A.P. Survey and Settlement Mannual, Chapter
XIII deals with pot kharab land, which is generally a non-
cultivable land and if the predecessors in interest had
ownership over this pot kharab land, the suit land, we fail
to see, why there is no reference at all to the family
settlement and partition deed dated 11.12.1939.
Admittedly, the predecessor in interest of the plaintiff got
this property in question through the above-mentioned
family settlement and partition deed. Conspicuous
absence of the suit land in question in the above-
mentioned deed would cast doubt about the ownership
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and title of the plaintiffs over the suit land in question. No
acceptable explanation has been given by the plaintiff to
explain away the conspicuous omission of the suit land in
the registered family settlement and partition deed. Facts
would also clearly indicate that in Ext-A1, the suit land has
been described in old Survey No.53 which was allotted to
the plaintiff’s predecessors in title. It is the common case
of the parties that Survey No.53 was sub-divided into
Survey Nos.60, 61 and 63. Admittedly, the old Survey
No.53 takes in only 33 acres and 12 guntas, then
naturally, Survey Nos.60, 61 and 63 cannot be more than
that extent. Further, if pot kharab land is not recorded in
the revenue record, it would be so even in case of sub-
division of Old Survey No. 53. The only explanation was
that, since the suit land being pot kharab land, it might
not have been mentioned in Ex.A.
22. A family settlement is based generally on the
assumption that there was an antecedent title of some
kind in the purchase and the arrangement acknowledges
and defines what that title was. In a family settlement-
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cum-partition, the parties may define the shares in the
joint property and may either choose to divide the
property by metes and bounds or may continue to live
together and enjoy the property as common. So far as
this case is concerned, Ex.A1 is totally silent as to whose
share the suit land will fall and who will enjoy it. Needless
to say that the burden is on the plaintiff to explain away
those factors, but the plaintiff has not succeeded. On
other hand, much emphasis has been placed on the failure
on the part of the defendants to show that the
applicability of the GLR. The defendant maintained the
stand that the entries made in GLR, maintained under the
Cantonment Land Administration Rules, 1937, in the
regular course of administration of the cantonment lands,
are admissible in evidence and the entries made therein
will prevail over the records maintained under the various
enactment, like the Andhra Pradesh (Telangana Area)
Land Revenue Act, 1317 Falsi, the Hyderabad Record of
Rights in Land Regulation, 1358 Falsi, the Hyderabad
Record of Rights Rules, 1956 etc. In order to establish
that position, reliance was placed on the judgments of this
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Court in Union of India v. Ibrahim Uddin & Anr. (2012)
8 SCC 148, Union of India & Ors. v. Kamla Verma
(2010) 13 SCC 511, Chief Executive Officer v.
Surendra Kumar Vakil & Ors. (1999) 3 SCC 555 and
Secunderabad Cantonment Board, Andhra Circle,
Secundrabad v. Mohd. Mohiuddin & Ors. (2003) 12
SCC 315. Both, the trial Court and the High Court made a
detailed exercise to find out whether the GLR Register
maintained under the Cantonment Land Administration
Rules, 1937 and the entries made there under will have
more evidentiary value than the Revenue records made
by the Survey Department of the State Government. In
our view, such an exercise was totally unnecessary.
Rather than finding out the weakness of GLR, the Courts
ought to have examined the soundness of the plaintiff
case. We reiterate that the plaintiff has to succeed only
on the strength of his case and not on the weakness of the
case set up by the defendants in a suit for declaration of
title and possession.
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23. In such circumstances, we are of the view that the
plaintiff has not succeeded in establishing his title and
possession of the suit land in question. The appeal is,
therefore, allowed and the judgment of the trial court,
affirmed by the High Court, is set aside. However, there
will be no order as to costs.
…..………………………J. (K.S. Radhakrishnan)
………………………….J. (A.K. Sikri)
New Delhi, January 07, 2014