Professional Documents
Culture Documents
UK
Southwark London Borough Council v Mills (1999)
• Landlord and tenant - Covenant - Quiet enjoyment - Tenants complaining of
inadequate sound insulation of flats - Whether covenant concerned only to protect
security of occupation - Whether extending to protection from noise disturbance
The landlord council owned a block of tenanted flats built in 1919 and the agreement with
each tenant contained a covenant for quiet enjoyment, subject to immaterial exceptions. The
agreement also incorporated provisions for arbitration in the event of disputes. On complaints
made by 19 tenants that sound insulation between flats was ineffective against the noise
generated by the normal and ordinary user of the premises, an arbitration tribunal held that
the council was in breach of the covenant for quiet enjoyment and ordered it to carry out
specified works to the flats. On appeal by the council to the High Court, Laddie J held that a
covenant for quiet enjoyment was no longer concerned only with protecting the tenant's
occupation of premises so as to give him security against having his occupation challenged
by adverse claimants, but could extend to disturbance caused by noise, and dismissed the
appeal.
On appeal by the council—
Held, allowing the appeal (Peter Gibson LJ dissenting), that a covenant for quiet enjoyment
did not impose an obligation on the landlord to improve the premises; that, in the
circumstances, the installation of effective sound insulation would amount to an improvement
of the premises; and that, accordingly, the tribunal was wrong to make a finding that the
council had been in breach of the covenant for quiet enjoyment and the order for specified
works of sound insulation would be set aside
maintain the common parts of the building of which they retained control, including lifts,
staircases, rubbish chutes and passages, and were also, in relation to the demised maisonette,
in breach of their covenant for quiet enjoyment and of the implied covenant under section 32
(1) of the Housing Act 1961 to keep in repair and proper working order the structure and
specified installations. The council denied the existence of the duty alleged and denied breach
of covenant. There was no formal demise of the maisonette but merely a document described
as "conditions of tenancy" with a form attached signed only by the tenants stating that they
accepted the tenancy on those conditions which related to obligations only on the part of the
tenants and not on the part of the council. The county court judge viewed the premises and
found that lifts were out of action, staircases unlit and the general conditions appalling as a
result of, inter alia, recurring acts of vandalism, despite the council's efforts, at considerable
expense to deal with the problem. The conditions in the demised premises of which the
tenants complained included a water closet cistern which overflowed each time the closet was
used and flooded the floor, due probably either to defective design or to the unsuitability of
the installation for a high rise block. The judge held in favour of the tenants that the council
were under an implied duty not only to keep the structure in repair but also to keep the
common parts in repair and properly lit and that they were in breach of that duty, and that
they were also in breach of the obligations imposed by section 32 of the Act of 1961 in
relation to defects in the maisonette itself. He awarded the tenants the £10 nominal damages
which they claimed. The Court of Appeal (Lord Denning M.R. dissenting in part) allowed an
appeal by the council.
On appeal by the tenants: -
Held, allowing the appeal in part, (1) that, since the contract of letting between the council
and the tenants as represented by the "conditions of tenancy" which the tenants had signed
was incomplete in that its terms were of a unilateral nature, it had to be established what the
complete contract was; that so far as the common parts were concerned there had to be
implied an easement for the tenants and their licensees to use the stairs, a right in the nature
of an easement to use the lifts and an easement to use the rubbish chutes; that the obligation
to be read into the contract on the part of the council was such as the nature of the contract
itself implicitly required; that where an essential means of access to units in a building in
multiple occupation was retained in the landlord's occupation then, unless the obligation to
maintain that means of access was placed in a defined manner on the tenants individually or
collectively, the nature of the contract and the circumstances required that it be placed on the
landlord; that the standard of obligation was what was necessary having regard to the
circumstances, viz., an obligation to take reasonable care to keep the means of access in
reasonable repair and usability with the recognition that the tenants themselves had their
responsibilities according to what a reasonable set of tenants would do for themselves; that
the obligation applied to local authority lettings as well as to private lettings and also applied
to the lighting of the common parts of the building; but that in the present case it had not been
shown that there had been any breach of the obligation