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GHANA BAR REPORT 1993 -94 VOL 3

 

Republic v High Court Accra, ex parte Chinto [1992 – 1993] 3 G B R 1066 – 1078  C.A

SUPREME COURT

FRANCOIS, AMUA-SEKYI, AIKINS, BAMFORD-ADDO, HAYFRON-BENJAMIN JJSC

26 MAY 1993

 

 

Mortgage – Foreclosure – Judicial sale – Mortgagor not party to, or notified of proceedings for judicial sale – Order for judicial sale wrongful – Order amenable to certiorari – Mortgages Decree 1972 (NRCD 96) ss 6, 15 & 18.

State proceedings – Certiorari – Natural justice – Court ordering judicial sale of property of mortgagor without notice to mortgagor – Whether certiorari available.

The applicant mortgaged her property to the Labadi Community Bank Limited as security for a loan to Kotex Limited. The mortgage deed provided that as between the mortgagor and the bank, the mortgagor was deemed a principal debtor for the moneys secured. The company defaulted in payment and the bank filed an originating summons in the High Court, Accra for judicial sale of the mortgaged property. No demand of the debt was made on the applicant nor was she notified of the action. Throughout the proceedings, the company was held out as the owner of the property and the court proceeded to order judicial sale of the property. The applicant therefore applied to the Supreme Court for an order in the nature of certiorari to quash the order for judicial sale. Counsel for the applicant contended that the proceedings leading to the order for judicial sale were null and void since the mortgagor, the owner of the property, who stood to be affected by the proceedings was not made a party.

Held: Under section 15 of the Mortgages Decree 1972 (NRCD 96), where there was default and the mortgagee decided to apply for judicial sale of the mortgaged property, such action could not be properly instituted without joining the mortgagor as a party. Under s 6 of the Decree, the mortgagor was personally liable for the debt as well as the mortgage security. When the bank elected to realise the security by judicial sale, the mortgagor who had an interest in the equity of redemption was an essential party to the suit. For that matter he ought to be a party or be sufficiently represented by persons who were parties. The applicant was not given a hearing before the order depriving her of her property was made; this amounted to a flagrant violation of the principles of natural justice. The application would therefore be granted. Tylee v Webb (1843) 6 Beav 552, Gedye v Matson (1858) 25 Beav 310, Caddick v Cook (1863) 32 Beav 70, Griffith v Pound (1890) 45 Ch D 553, Moore v Morton (1886) WN 196, Martins Bank v Kavanagh [1948] 2 All ER 448, Temperance Permanent Benefit Building Society v Nevitt [1940] 3 All ER 273, and R v Wandsworth Justices ex parte Read [1942] l KB 281 followed.

Cases referred to:

Caddick v Cooke (1863) 32 Beav 70, 1 New Rep 463, 32 LJ Ch 769, 7 LT 844, 9 Jur NS 454.

Darbah v Ampah 20 February 1990, SC.

Gedye v Matson (1858) 25 Beav 310.

Griffith v Pound (1890) 45 Ch D 553, 59 LJ Ch 522.

Martins Bank v Kavanagh [1948] 2 All ER 448.

Moore v Morton (1886) WN 196.

R v Wandsworth Justices, ex parte Read [1942] 1 KB 281, [1942] 1 All ER 56, CA.

Temperance Permanent Benefit Building Society v Nevitt [1940] 3 All ER 273, 163 LT 234.

Tylee v Webb (1843) 6 Beav 552, 1 LTOS 408.

APPLICATION to the Supreme Court for order in the nature of certiorari to quash an order for judicial sale by the High Court, Accra.

James Ahenkorah for the applicant.

E V A Adjetey for the respondents.

AIKINS JSC. This is an application by Diana Chochoo Chinto for an order of certiorari to bring up and quash the proceedings in the suit instituted in the High Court, Accra bearing the number OS 1955/91 and titled “Labadi Community Bank Ltd v Messrs Kotex Limited” and the resultant judgment therein dated 8 November 1991 ordering a judicial sale of all that piece or parcel of land with a building or buildings thereon, the property of Diana Chochoo Chinto, the applicant herein, situated at North Labadi, Accra, and mortgaged to secure the indebtedness of Messrs Kotex Limited to the Labadi Community Bank Limited. Sometime in 1990 the applicant guaranteed the indebtedness of a registered limited liability company, Messrs Kotex Limited based in Labadi, Accra to the Labadi Community Bank Limited, and by way of further security, mortgaged her land with a house thereon in which she lived to the said bank by an indenture of mortgage dated 20 June 1990 and registered in the Land Registry as instrument No 1796/1990. When the company failed to repay the loan as agreed upon, the bank instituted proceedings by way of originating summons in the High Court, Accra for the substantive relief of judicial sale of the mortgagor’s house, which she had mortgaged to the bank to secure the debt of Kotex Limited. On 8 November 1991, the High Court gave judgment for the judicial sale of the house. To enforce the order for judicial sale, the bank caused a writ of fi: fa. to be issued against the property, and as a result a notice of attachment and sale were issued by the Deputy Sheriff.

Counsel for the applicant, Mr James Ahenkorah, has urged that the originating summons leading to the order for judicial sale of the mortgaged property was legally null and void since the mortgagor who was the owner of the property and the person who stood to be affected by the outcome of the proceedings which would destroy the equity of redemption was not a party to the suit before the High Court, Accra. I think the argument of counsel for applicant is quite tenable and well-founded because an order for judicial sale cannot, in my view, be properly made without ensuring that the mortgagor who has interest in an equity of redemption, is a party to the suit. I must confess that I do not see how the action leading to the order for judicial sale of the mortgaged property can be said to have been properly instituted unless all persons interested in the equity of redemption are brought before the court. I am buttressed in this view by the contents of the notice of attachment dated 31 August 1992 and the notice of intention to sell by public auction of even date, issued by the Deputy Sheriff of the High Court, Accra (exhibits VKA 2 and 3 respectively) both of which were fixed on the mortgaged property, which indicates the mortgaged property as belonging to the judgment debtor, Kotex Limited even though it does not own it. It is therefore a misrepresentation of fact. The proper person to have been sued was the mortgagor.

Under section 15 of the Mortgages Decree 1972 (NRCD 96), where there is failure of performance of any act secured by the mortgage, the mortgagee is entitled to take any of the following two steps, namely: (a) sue the mortgagor or obligor or both on any personal covenant to perform or (b) realise his security in the mortgaged property in any of the ways prescribed in Part II of the Decree. With respect to (b) above, the mortgagee may (i) apply to the court for the appointment of a receiver who may be empowered by the court to take possession of the mortgaged property and act in accordance with any directives that the court may issue, or (ii) enter and take possession of the mortgaged property, if that may be done peaceably, or assert his right by an action for possession, or (iii) apply to the court for an order for judicial sale of the mortgaged property, in which case the court will have to consider what opportunity, if any, the mortgagee has offered the mortgagor or obligor or both to remedy the failure of performance - see sections 15, 17(1) and (2) and 18(1) and (2) of the Decree. As regards option (a) above, it is my view that if the mortgagee decides to take action upon failure of the mortgagor to perform any act secured by the mortgage, the mortgagor must be a party to the action. In the same vein if the mortgagee elects to apply for an order for judicial sale of the property in option (b), such action cannot be properly instituted without ensuring that the mortgagor is a party to the proceedings.

A judicial sale ordered by the court under section 18 of the Decree entitles a mortgagee to foreclose the rights of the mortgagor to redeem the mortgaged property - see section 18(9) of the Decree. The legal position is that since the mortgagor is interested in the equity of redemption, a judgment in a foreclosure action gives him the opportunity to redeem. If he fails to do so he is foreclosed, and for that matter, he must be a party or be sufficiently represented by persons who are parties. See Tylee v Webb (1843) 6 Beav 552 at 557; Gedye v Matson (1858) 25 Beav 310; Caddick v Cook (1863) 32 Beav 70; and Griffith v Pound (1890) 45 Ch D 553 at 567.

Griffith v Pound was a case where summons was originally taken out for the foreclosure of three mortgages dated 1876, 1882 and January 1888. The summons was later amended by adding three other parties who claimed under three mortgages which were not originally included in the summons. An application was made to the judge in chambers to add two out of a large number of debenture holders pursuant to Order 16 rule 9 of the Rules of the Supreme Court 1883. This rule provides for the representation of numerous persons having the same interest in a cause or matter to sue or be sued or authorised by the court or judge to defend in such cause or matter  - similar in content to Order 16 rule 9 of our High Court (Civil Procedure) Rules 1954 (LN 140A). The judge appointed two of them to defend in the action on behalf and for the benefit of the other mortgagees and debenture holders of the company. An objection was taken that an order for foreclosure could not be made in an action so constituted. In response to this the judge said:

“In my opinion that objection is well-founded, and that an order for foreclosure cannot be made without having here all the persons interested in the equity of redemption.”

He continued:

“In an action for foreclosure, unquestionably according to the rules of the Chancery Division all persons interested on the equity of redemption ought to be defendants.”

I think I agree with the judge, Stirling J, in his proposition of the law, and I would hold that according to our statute also, i.e. the Mortgages Decree, all persons interested in the equity of redemption, such as the applicant herein, ought to be defendants in any summons for the relief of judicial sale of a mortgaged property.

In Moore v Morton (1886) WN 196, it was held that as long as the mortgagor remains the owner of the equity of redemption in the whole or any part of the mortgaged estate, he was a necessary party to any action in respect of the mortgaged property. I think I agree with this holding, and I adopt it. The very wording of paragraph 4(b) of the indenture of mortgage, exhibit VKA1, in my view makes it imperative that the mortgagor should be a necessary party to any such action. The sub-paragraph states:

“(b) Although as between the customer and the mortgagor the mortgagor is only a surety for the customer yet as between the mortgagor and the bank the mortgagor shall be deemed to be a principal debtor for the moneys hereby secured accordingly and the mortgagor and the mortgaged premises respectively shall not be released by time being given to the customer or by any act matter or thing whereby the mortgagor as a surety only or the premises comprised in this security might have been released.”

Counsel for the applicant has argued that no proper notice of demand was given to the applicant as the mortgagor under the mortgage deed, exhibit VKA1, neither was any notice of the action in court for the judicial sale of the mortgaged property given her. This contention seems to be well-founded. The exhibit provides:

“A notice may be served by the mortgagor and/or the customer upon the bank by sending it through the post in a prepaid envelope addressed to its registered office and any demand or notice to be made or given by the bank may be made by letter signed by any manager or other duly authorised officer of the bank sent through the post in a prepaid envelope addressed to the mortgagor and/or customer at his/its last known address but in the case of a company at its registered office and any notice served by post on the mortgagor and the customer shall be deemed to have been served at the expiration of four (4) clear days after it is posted in Ghana and in proving such service it shall be sufficient to prove that the notice was so posted.”

No final demand note from the bank appears to have been sent to the mortgagor, nor is there any indication, from the affidavits filed, that any notice was posted to the mortgagor with respect to the action in court for the judicial sale of the property. The applicant can therefore safely be said to have been taken by surprise when she found the notice for judicial sale fixed to her property. The fact that some relatives of the mortgagor were said to have had information about the institution of the suit against Kotex Limited by the plaintiff-bank cannot be said to be proper notice to the mortgagor to entitle the bank to proceed to execute the judgment of the High Court against the mortgagor. In this connection, Kotex Limited is not the agent of the applicant.

In the result since the mortgagor was not a party to the proceedings in the High Court, Accra in suit numbered OS 1955/91 and bearing the title “Labadi Community Bank Ltd v Kotex Limited” and since the defendant in that suit is not the owner of the mortgaged property, as is contained in the notice of attachment, and the notice of intention to sell by public auction both dated 31 August 1992, the mortgaged property cannot properly be sold as ordered by the High Court in the judgment of the court dated 8 November 1991. I would accordingly allow the application.

FRANCOIS JSC. I agree.

AMUA-SEKYI JSC. I also agree that the application be allowed.

BAMFORD-ADDO JSC. I agree with my brothers that certiorari would lie to quash the order and proceedings of the High Court in suit No OS 1955/91 titled Labadi Community Bank v Messrs Kotex Limited. When in March 1991 the customer of the Labadi Community Bank failed to repay the loan as agreed upon, the said bank elected to institute proceedings by way of originating summons for an order of judicial sale of the mortgaged property of the applicant herein, under s 15(b) of the Mortgages Decree 1972 (NRCD 96). Instead of suing the mortgagor herself or joining her in the suit, the said bank sued only the customer who had no interest in the mortgaged property. The applicant was therefore not given any opportunity to raise any objection to the application for a judicial sale of the property or to raise any other defence open to her. Throughout the proceedings in the High Court, as evidenced in the issues set out to be determined in the originating summons, exhibit VKA 4 and also in the notice of amendment, exhibit VKA3, the defendant customer, was mistakenly held out as the owner of the property. This in my view confused the judge into making the order for judicial sale in the absence of the actual mortgagor in the suit.

Under s 6 of NRCD 96, the mortgagor is personally liable, as well as liable on the mortgage security, for the performance of the act or acts secured by the mortgage; so that when the bank elected to realise the security by judicial sale, the mortgagor who had an interest in the equity of redemption was an essential party to the suit.

In Martins Bank v Kavanagh [1948] 2 All ER 448, the defendant charged her farm by way of legal mortgage to the plaintiff. She was later adjudged a bankrupt but remained in possession of the farm. The plaintiff issued originating summons claiming possession of the farm but did not add as a defendant, the trustee in bankruptcy in whom the equity of redemption was vested. The court held:

“The application was properly made by originating summons but as it involved a step in the enforcement of the security which might prejudice the person entitled to the equity of redemption the Trustee in Bankruptcy should have been joined and therefore the summons was defective.”

Similar decisions were given in the case of Griffith v Pound (1890) 45 Ch D 553 and Caddick v Cook (1862) 32 Beav 70. In the Appeal case of Temperance Permanent Benefit Building Society v Nevitt [1940] 3 All ER 273, the husband of the respondent, Nevitt mortgaged his house to the appellant building society and had fallen into arrears with payments under the terms of the mortgage deed, whereupon the society became, under the mortgage, entitled to possession. It was a period during the war and the husband had been called up and was serving with His Majesty’s forces. The Society issued a writ for possession against the wife who was living in the house. She did not enter appearance and the Society applied to court to sign judgment in default of appearance. The application was refused since the husband-mortgagor was not made a party to the writ which claimed against the wife alone. It was held by Farewell J that the proceedings from start to finish had been an abuse of the court; that the Society knew that the proper person to make defendant was the husband-mortgagor and accordingly directed that the writ and all subsequent proceedings be set aside altogether. The Society appealed but the decision of Farewell J was affirmed. Per Scott LJ:

“In my opinion not only must we affirm the judgment by Farewell J. but we must direct that the writ and all subsequent proceedings be set aside altogether … I may say this further. In my opinion the costs of this litigation cannot constitute any proper charge to be added to the mortgage and I hope the plaintiff society will make no attempt to take that course.”

The conclusion, as I see it, is that an order for judicial sale made by the High Court in the absence of the applicant who had an interest in the equity of redemption is void. Further the applicant was not given the opportunity of being heard before the order depriving her of her property was made; this amounted to a flagrant violation of the principles of natural justice.

In the case of R v Wandsworth Justices, ex parte Read [1942] l KB 281 the court held, per Humpheys J:

“If a person can satisfy this court that there has been a complete disregard by an inferior tribunal of the laws of natural justice he is entitled to the protection of the court. I entirely agree with my Lords’ description of the proceedings before the justices here as a denial of justice to the applicant


 

 who was prevented from taking any part in any discussion, if there were any regarding the rights and wrongs of the matter and was never heard in his own defence.”

In that case, the order for certiorari was granted. In similar circumstances as this case, the applicant is entitled to an order of certiorari to quash the proceedings and judgment of the High Court in suit no OS 1955/91 titled “Labadi Community Bank Limited v Messrs Kotex Limited.”

HAYFRON-BENJAMIN JSC. I have read the respondent’s affidavit in opposition with great interest. I gain the impression that Madam Diana Chochoo Chinto who, to the knowledge of the respondent, is an illiterate old woman, was inveigled into executing a document purporting to be a mortgage on 28 June 1990, to secure the defendants, Kotex Limited, in the original action in the High Court, Accra. How such an expression in the alleged mortgage deed as:

“AND WHEREAS the customer has or may have accounts with the bank and has requested the bank to allow it to overdraw the same and give it banking accommodation on the usual banking terms and has agreed with the bank that if the bank shall provide any such facilities or accommodation the same shall be secured in manner hereinafter appearing…”

was properly interpreted to her in the Ga language, I cannot fathom. The interesting thing however, about the mortgage was that it was not even stated in the recitals thereof that Madam Chochoo Chinto was agreeable that her property shall be used a security for the accommodation which the defendant, Kotex Limited, was to be granted by the respondent. If the contents of the mortgage document are correct, there is nothing to show that as at 28 June 1990, Kotex Limited owed any monies to the respondent for which Madam Chinto’s property was to be used as security. In spite of the respondent’s declaration that they would give Kotex Limited “accommodation on the usual banking terms” they imposed a covenant that overdrafts were to attract interest of 27 percent per annum. Barely a year after the execution of this mortgage deed by the applicant, the respondents, then plaintiffs in the High Court, commenced an originating summons against Kotex Limited praying for an order of judicial sale under the Mortgages Decree of the applicant’s property. In their affidavit in support of their originating summons, the respondents, then plaintiffs in the High Court, deposed as follows:

“In February 1991, it was agreed between the plaintiffs and the defendant that an outstanding amount in respect of a temporary facility should be amalgamated with the


 

 outstanding loan to be repaid at the rate of 550,000 cedis per month with effect from 15 February, 1991.”

The averment does not say that the applicant was informed of this “amalgamation” of loans and whether she agreed that it should be so done. In the High Court, only Kotex Limited was sued and judgment for the judicial sale of the applicant’s property was given on 8 November 1991. I do not intend to pursue the legal consequences of this so-called amalgamation of debts, but it will suffice to say that the respondents, then plaintiffs, chose their victim, pursued it and even compromised with it. In exasperation, they turned to the order for judicial sale which, in my view, they had erroneously obtained in respect of the applicant’s property and on 31 August 1992, the Deputy Sheriff granted an order that the sale of the applicant’s property should proceed on 25 September 1992. It was when the notice of sale was posted on her premises that the applicant bestirred herself. She went to the High Court and did not obtain relief. She therefore invoked the supervisory jurisdiction of this court.

Before us, the respondents, by their paragraph (xii) of their affidavit in opposition, contend that the application is “odd, irregular, frivolous, belated, misconceived and unmeritorious.” With respect, learned counsel is wrong on all the points. This court in Darbah v Ampah dated 20 February 1990, where the applicant wanted to circumvent the appeal process by resort to an application for a prerogative writ conceded that:

“There are situations in which the courts show anxiety to deal with cases by adopting methods which are faster than the usual processes of normal appeals by resorting to the remedies being sought in the present application.”

In the Darbah case supra, the court reiterated the two grounds upon which prerogative writs of this nature may be entertained as being (i) excess or want of jurisdiction in the court and (ii) error of law appearing on the face of the record. In rejecting the application in the Darbah case supra, this court concluded that:

“The application is only a desperate attempt to obtain the help of the Supreme Court to avoid the consequences facing a litigant who has twice lost his appeal and has neglected to observe the rules of court regarding appeals to the Supreme Court.”

The Darbah case supra, is clearly distinguishable from the present application. The applicant in this case has never litigated with the respondent. Her only foray into the judicial system was when she went to have the High Court set aside the order for judicial sale which was wrongly dismissed. The question to be asked is, if she had a right of appeal, and I have my doubts about her capacity in that regard since the application was interlocutory, would she be able to protect her property during the pendency of her appeals through the hierarchy of our courts? In my respectful opinion, I think the applicant was right in approaching this court in the exercise of its supervisory jurisdiction. I think the applicant’s case comes within the first part of the dictum in the Darbah case, supra and she is properly before us.

In argument before us this court directed the attention of learned counsel for the respondent to section 15 of the Mortgages Decree and enquired whether it was not an oversight that in the original proceedings before the High Court only the obligor had been sued and not, as permitted by that section, that both the obligor and the mortgagor could be sued. Learned counsel replied that the plaintiffs in the High Court had deliberately sued only the obligor. This to me was a strange answer having regard to the order which was made by the High Court for the sale of the applicant’s property. Again, I would not like to pass any comment on the respondent’s deliberate choice of only the obligor, Kotex Limited, as the respondent to that application in the High Court. To me the legal consequence of a choice as it is envisaged in section 15 of the Mortgages Decree is clear. The mortgagee is put to his election. He may choose to pursue the borrower or the mortgagor (surety) or he may sue both the borrower, in this case the obligor, and the mortgagor. If the mortgagee sues the borrower (obligor) only, the action is on the personal convenant to pay the debt contained on the document under consideration. The mortgagee cannot obtain an order for judicial sale against a mortgagor when he is not a party. An order for judicial sale therefore can only be obtained against a mortgagor who has been sued. Whether the mortgagee may pursue the obligor to the limit and if he does not obtain satisfaction, follow the mortgagor, will certainly depend upon whether, on a true interpretation of section 15 of Mortgages Decree, the mortgagee is put to his election.

I have had the pleasure of reading the able lead judgement of my learned and respected brother Aikins JSC and I agree entirely with his reasoning and the conclusions to which he has arrived. I wish however to make a short contribution of my own to the law on the subject of mortgages within our municipality as with the increase in commercial activity, the ability to recover on mortgages and hypothecations come into focus. Our Law Reports are replete with cases on the contest of wills, between lenders and borrowers, mortgagors and mortgagees and all types of transactions affecting land in which one party is given a “power of sale without resort to an action in court.” Invariably the security offered for such loans are mainly farms especially cocoa farms and in these modern times, buildings and other landed property. Litigation always rears its head when the time for payment arrives and, almost invariably, the borrower cannot pay. Then the power of sale arises.

The concept of a legal mortgage affecting land was, until the passing of the Mortgages Decree, part of the legal system within our municipality. Of course, it is well known that the powers of a legal mortgagee are, inter alia, the powers of sale, forfeiture, possession and appointment of a receiver. In collusion with auctioneers, the power of sale was applied with devastating effect. The ingenuity of lawyers countered this devastation by resort to claims that secured property was in fact family property and to the strict and harsh applications of the Loans Recovery Ordinance (Cap 175) and the Moneylenders Ordinance (Cap 176). It must be mentioned that for the protection of borrowers the courts strictly applied the provisions of these two last mentioned Ordinances. In answer to the cries of cocoa farmers who were losing their properties to the combination of rapacious moneylenders and “crooked” auctioneers, the Agricultural Credit and Co-operative Bank Act 1965 (Act 286) was passed and received the Presidential Assent on 9 April 1965. Sections 28, 29 and 30 of this Act were intended specifically to protect cocoa farmers from molestation by moneylenders and placed a ten-year clog on the right of the moneylender to recover his money provided the borrower or mortgagor registered his loan transaction with the bank. The Act was amended by NLCD 182.

The passing of the Mortgages Decree 1972 thus put an end to the distinction between a legal mortgage and an equitable mortgage. Henceforth the courts were to have control over all mortgages and hypothecations. The reliefs which could be sought were also specifically stated in the Decree. In my view, the history of mortgages in this country shows that the Mortgages Decree was passed in answer to the crying need of borrowers for protection. A court ought not therefore rush to grant an order for judicial sale if other alternatives exist which may with advantage be used in the protection of borrowers.

Madam Diana Chochoo Chinto was most unfortunate. She did not litigate, yet stood to lose her property. The judgment ordering the judicial sale of her property was null and void and she was entitled ex debito justitiae to have it set aside. The application succeeds and the property of the applicant Madam Chochoo Chinto more particularly described in the notice of sale dated 31 August 1992, signed by the Deputy Sheriff, High Court Accra is to be released from attachment forthwith.

Application granted.

S Kwami Tetteh, Legal Practitioner

 
 

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