Delhi Development Authority Vs. Skipper
Construction & Anr  INSC 88 (25 January 1995)
P.B. Sawant, P.B. Mohan, S. (J) Jeevan Reddy, B.P. (J)
1995 SCC Supl. (2) 160 JT 1995 (1) 571 1995 SCALE (1)734
facts leading to this interlocutory application are as under:
8.10.1980, an auction was held by the Delhi Development Authority 573
(hereinafter referred to as the 'DDA') of the Commercial Tower Plot, Jhandewalan,
Block E, New Delhi ad measuring about 540 sq. mtrs.
The first respondent, M/s. Skipper Construction Co. (P) Ltd. (hereinafter
referred to as the 'Skipper') was the highest bidder, its bid being Rs. 9.82 crores.
As per the conditions of the auction, Skipper deposited 25% of the bid amount.
The said bid was confirmed by the DDA on 14.10.1980. Skipper was called upon to
make the balance of payment of 75% of the bid amount within 90 days as per the
conditions of the auction.
Government of India issued directions to the DDA
accepting the request of Skipper and granting an indulgence to it by directing
the DDA to reschedule the recovery of 75% of the bid amount with interest from
to this, DDA called upon the Skipper to enter into fresh agreement, licence
agreement and furnish bank guarantees in compliance with the directions of the
11.8.1987, Skipper entered into a licence agreement, paid 50% of the original
bid and secured payment of the bal- ance 50% of the bid and interest at the
rate of 18% per annum thereon by submitting bank guarantees for Rs.9.82 crores,
in terms of which a sum of approximately 1.944 crores was required to be paid
as each instalment. A total of 5 instalments was payable every six months, the
first be- ing due on 15.9.1987 and the last on or about 15.9.1989.
Against the first instalment of Rs.1.944 crores failing due on 15.9.1987, DDA
recovered about Rs.88.76 lakhs by encashment of the bank guarantee on
7.12.1987.Thereafter the first respondent did not pay in terms of the
4.10.1988, the Lt.Governor issued a direction at the request of Skippe,
deferring recovery from Skipper of the 2nd instalment as per the agreement
dated 11.8.1987 till one month after the sanctioning of the building plans.
August, 1989, the first respondent filed writ petition in the High Court of
Delhi, being CWP No.2371 of 1989. The principal relief sought in the writ
petition related to sanctioning of building plans and permission for
construction. An interim order was passed directing the Skipper to furnish
fresh bank guarantee since the bank guarantee furnished earlier had lapsed. The
DDA did not encash the fresh bank guarantee which was defective. Time and again
the DDA represented to the Court that the monies were outstanding from the
Skipper and no indulgence ought to be shown to them till the payment of the
outstanding amount of over Rs. 3 crores under the principal sum itself was
deferred from time to time.
16.2.1990, the Lt.Governor revoked the order dated 4.10.1988 deferring the
payment of instalments. As a result the entire sum because payable in one lump
sum. However, this order of the Lt. Governor was stayed by the Court.
it became necessary for the DDA to grant conditional and provisional sanction
to plans of the building subject to the payment of monies due to the DDA.
19.3.1990, an interim order was passed by the Delhi High Court by which Skipper
was permitted to commence con- struction without first depositing the dues 574
of the DDA. Against this order an appeal was preferred.
Division Bench directed the payment of a token sum of Rs.5 lacs which was
offered by the Skipper as a gesture of goodwill within 2 days; a sum of Rs.15 lacs
within 15 days and Rs.1.944 crores within one month to the DDA. It was further
directed that the quantum of monies and the mode of payment will be decided at
the time of final disposal of the writ petition.
this order was not complied with. Notwithstanding this, the Skipper approached
the Court once again for exten- sion of time to make payment and for direction
Court extended the time by one month on 16.4.1990, af- fording liberty to the
DDA to encash the bank guarantee.
bank guarantee could not be encashed because A was conditional By then the
entire monies had fallen due. Those amounts had not been paid. The DDA filed
SLP (C) Nos. 6338- 6339 of 1990 against the interim orders dated 19.3.1990 and
16.4.1990 passed by the High Court of Delhi. By an order dated 3.5 A 990 Ohs
Court stayed further construction and made it conditional upon payment of Rs.
1. 1944 crores.
Suit No. 1875 of 1990 was files by the Skipper for a direction that the DDA
ought not to insist upon payment by cash or draft and ought to be directed to encash
bank guarantee. The learned Vacation Judge issued orders directing the DDA to
invoke the bank guarantee. however, the suit was ultimately dismissed.
21.12.1990, a division Bench of the Delhi High Court dismissed CWP.No.2371 of
1989 directing Skipper to pay to the DDA by cash or demand draft a sum of Rs.8,12,68,789/-
within 30 days; to stop construction till payment is made; and in the event of
non-payment by the Skipper, DDA would be entitled to enter upon the property
and forfeit the monies received by the DDA.
14.1.1991, detailed reasons for its operative order came to be rendered by the
Division Bench of the Delhi High Court with further direction giving effect to
clause 15 of the licence agreement dated 11. 8.1987 that in the event of
non-compliance of the payment by the Skipper the property shall stand vested in
the DDA, free from all encumbrances, in addition to the forfeiture of the
the dismissal of CWP No.2371 of 1989 Skipper filed SLP (C) No. 186 of 1991
before this Court.
29.1.1991, a Division Bench of this Court passed an interim order (in which one
of us, P.B. Sawant,J., was party). It inter alia reads as under:
That the petitioners herein shall deposit a sum of Rs.2.5 crores (Rupees two crores
and fifty lacs only) in cash/ bank draft with the Delhi Development Authority
within one month from today and the petitioners will further deposit similar
amount by cash/bank draft by 8th April 1991.
That be petitioners shall be permitted to resume the construction of the
building in question only after making the first deposit as stated in clause (i)
above (iii) That if be petitions to do posit the amounts as aforesaid the Delhi
Development Authority will be free to act in accordance with the impugned order
dated 21st December, 1990 of High Court in CWP No.2371 of 1980.
'Mat the petitioners shall not induct any person in the building or create any
right in favour of any third party.
That the matter be listed for further orders before this Court on 9th April, 1991."
4.2.1991, in violation of the agreement and in gross contempt of the above
order, the Skipper issued adver- tisement in the leading newspapers seeking to
create 3rd party rights.
25.1.1993, SLP(C) No. 186 of 1991 was dismissed by this Court. By virtue of the
above order, the DDA on 10.2.1993 re-entered and took physical possession of
the said property, free from all encumbrances; monies paid by the Skipper were
Notwithstanding all these, Skipper filed yet another suit on the original side
of the High Court of Delhi, being Suit No.770 of 1993 for the relief of:
injuction restraining the DDA from interferring with the title and possession
of the property;
mandatory injuction directing the DDA to recompute the principal amount and
interest payable by Skipper;
a declaration that the present calculations are wrong;
a declaration that re-entry/ re-possession and determination of the rights of
Skipper are bad in law and nonset;
a declaration that all dues have been paid by Skipper to the DDA;
(vi) a declaration that clause 15 of the Licence Agreement dated 11. 8.1987 is
non-est and in bad in law.
service of notice, DDA filed application, I.A.No.8500 of 1993 in Suit No.770 of
1993, for rejection of the plaint as all the issues raised by Skipper were resjudicata
and even otherwise the plaint was barred by law. The said application is
8.11.93, DDA issued notices for auction of the said property. The 2nd
respondent sought to implead itself in the suit and on 1.12.1993 filed an
application for stay of auction which was opposed by the DDA.
9.101993, a learned single Judge of the Delhi High Court allowed the auction to
proceed with and restrained the DDA from accepting or confirming the bid at the
auction scheduled for 10. 12.1993. Aggrieved by this order DDA filed SLP(C) No.
21000 of 1993 against the interim order of the Delhi High Court. Besides the
above proceedings, the Allahabad High Court in a writ petition stayed the
notice of auction by the DDA. The City Civil (Munsif) Court at Ghaziabad (UP)
passed orders of status qua in respect of a flat in the said building in
November 1993. Thus, the auction to be held on 10. 12.1993 was disrupted. Once
again the attempt of DDA to auction the flats could not fructify.
the method of auction as not yielding results DDA decided to invite tenders for
the sale of the said property as an alternative method. Accordingly, notice inviting
tenders was published in the leading newspapers on 31.1.1994. There was only
one tender that too was conditional. Therefore, 576 the same was rejected.
28.9.1994, the DDA once again caused publication of notice inviting tenders.
The DDA received three tenders.
highest acceptable tender was of M/s. Banganga Investments Pvt.Ltd. It is under
these circumstances, I.A. No. 9 of 1994 was filed to accord permission to
confirm the bid for the grant of lease hold rights in favour of M/s Banganga Investments
Mr. Arun Jaitely, learned senior counsel for the petitioner urges that the
first respondent (Skipper) has indulged in abuse of process of law more than
once. The order of the Division Bench of the Delhi High Court dated 21.12.90 reported
in (1991) DLT 636 at page 647 clearly enables the DDA to take over plot along
with the buildings thereon free from all encumbrances and forfeit the entire
amount paid by the first respondent in the event of the payment, as stated in
the order of the High Court dated 21.10.1990 was not forthcoming. SLP(C) No.
186 of 1991 filed against that order was dismissed. To challenge the order of
the Division Bench as confirmed by this Court is a gross abuse of the process
The sale of space to various flat owners is in violation of law and judicial
directions. That can confer no right upon the Hat owners. In view of the
categorical direction of the Delhi High Court that the flat shall vest in DDA
free of all encumbrances, such a sale is also in violation of the agreement
between DDA and Skipper entered into August, 1987.
order of this Court made on 21.9.1992 clearly indicts Skipper for inducting any
person in building or creating any right in favour of the third party. The
alleged creation of third party right, is also vitiated by fraud for the
The judgment of the Delhi High Court (1991) DLT 636 at page 647 notes that the
counsel for the Skipper Construction has contended that the interest of 870
buyers of space will suffer.
association of flat owners claim to have 1200 members.
Skipper Construction in their SLP(C)No. 186 of 1991 stated that there are
815flat owners in the property.
High Court directed M/s Skipper Construction to furnish a list of flat owners
and on 17.11.93 M/s Skipper Construction claimed that they have 2700 flat
is obvious that bulk of the interests created is clearly vitiated by fraudulent
acts of the alleged flat owners and/or the Skipper. In any case, the DDA has no
liability qua the said flat owners who have entered into alleged transactions
on their own risk and consequences.
perusal of Application I.A.No.3 of 1994 will clearly show that the agreements
filed by Mrs. Anjana Khosla are dated 26.11.1992. That itself will clearly show
how the order dated 29.1.1991 has been violated. Having regard to the
sanctioned space of 20,000 sq.meters there cannot be 2,700 flat purchasers, as
worked out on that basis each purchaser will get 66 sq.ft. approximately.
Because of the attempt of the flat owners to disrupt the auction, DDA had 577
no other option than to invite tenders. Fortunately, the second tender offered
is made by M/s Banganga Investments Pvt.Ltd. for Rs.70 crores and 10 lacs. That
is in keeping with the market rate. Hence, it is prayed that the offer may be
accepted and Skipper may be debt with for abuse of process of court.
The learned counsel for the Skipper made an attempt to justify the filing of
the second suit but later gave up that argument. By then Mr. G. Ramaswamy,
learned senior counsel came and put forth a plea that as a last chance if
Skipper is granted time it will pay off-the entire dues.
passed the operative order on 3.1.95 stating that the reasons will be furnished
The reasons for the said operative order are furnished below:
the above narration it is clear that the Skipper has time and again indulged in
abuse of process of court. Cal- culated
attempts have been made to circumvent even the orders of this Court.
This Court by its order dated 29.1.1991 specifically directed the Skipper in no
uncertain terms to make the pay- ment of Rs. 5 crores with a specified time.
There was also a further restrain on Skipper from creating any rights in the
property. It is most surprising that inspite of this specific order, the
Skipper would issue an advertisement on 4.2.1991 to the following effect:
GROUP OF COMPANIES [ANNOUNCES] ISSUE of Commercial Flats for retired/ Retiring
Personal/Professionals/Self employed & other persons in our BAU MAKAHAN SINGH HOUSE JHANDEWALAN TOWER, JHANDEWALAN EXTN. at highly concessional rates it is once
in a lifetime opportunity to own a commercial property of your own in Bau Makhan
Singh House" A prime project in the middle of high business environment.
location of tower is as rare as the offer itself [SALIENT FEATURES] * Ultra
modem multi storeyed commercial complex (Shopping cum office complex) * Ground
to 3rd Floor centrally air conditioned with escalators.
quality of construction.
Interest free payment schedule linked with construction.
Excellent investment returns.).
Special Leave Petition (Civil) No. 186 of 1991 as dismissed by this Court on
25.1.1993. Therefore, the matter should have normally rested at this stage.
But, yet the Skipper would file Suit No. 770 of 1993 for various reliefs for
which CWP No.2371 of 1989 was preferred before the Delhi High Court which writ
petition came to be dismissed on 21.12.1990 by an operative order giving
detailed reasons on 14.1.1990
Then again, Writ Petition before the Allahabad High Court and one more suit
before the City Civil (Munsif) Court at 578 Ghaziabad were filed. These were
nothing but attempts to set at naught the orders of this Court. No doubt, the
writ petition before the Allahabad High Court and the suit before the City
Civil (Munsif) Court at Ghaziabad may be third parties, yet the complicity of
Skipper cannot be ruled out.
Skipper issued an advertisement to the following effect on 26.5.1992 inviting
offers for confirmed booking of commercial flats within a stone throw of Connaught
Place in relation to the property conforming with the subject matter in this
GROUP OFFERS CONFIRMED BOOKING OF COMMERCIAL FLATS WITHIN A STONES THROW OF
CONNAUGHT PLACE Sale of Commercial Flats BAU MAKHAN SINGH HOUSE, DEWALAN TOWER,
JHANDEWALAN EXTENSION, At highly concessional rates
-------------------------------- This offers is only for confirmed bookings, on
first cum first served basis.
COST OF FLAT: Rs. 1,00,000 BOOKING AMOUNT: Rs. 50,000/ Balance in easy
construction & time linked instalments.
50 FLAT AVAILABLE --------------------------------
The creation of rights in favour in third parties during the pendency of the
proceeding is nothing but an attempt to over-reach or circumvent the orders of
a persual of the records, it is also clear that there are several individuals
who have entered into the agreement to purchase the premises before and after
29.1.1991. It is most unfortunate that guiltless and innocent purchasers have
been brought to this sorry situation by this crafty builder. This could have
been avoided, had the D.D.A not handed over the possession of the suit land to
Skipper even before receiving the amount in full in accordance with the
agreement or at least in accor- dance with the orders of this Court. Truly, it
has obliged the Skipper to further the evil designs of the Skipper.
The order dated 4.10.1988 passed by then Ex-Chairman of the D.D.A (the then Lt.
Governor of Delhi) runs to the following effect:
F.4 (1) 80/Impl.
Director (C.L.) DELHI DEVELOPMENT AUTHORITY New Delhi 4/10/1988 M/s. Skipper Constn.
Co. (P) Ltd.
Road, New Delhi.
Request for deferment of IInd instalment in respect of Jhandewalan Tower Plot,
Block-B, Jhandewalan, N.Delhi.
refer to your request on the subject noted above. It is to inform you that L.G.
has been pleased to consider your request for the deferment of IInd instalment
which was due on 15.3.1988 for one month from the date of approval of the
building plans subject to payment of interest changes 18% per annum. It may,
however, please be noted that the offer will be withdrawn if any delay/non 579
co-operation for getting the building plans finalised is noticed from your
faithfully, Sd/ DIRECTOR (C.L.)."
caused dismay to as to how the orders came to be passed by exercise of powers
under Section 41 of the Delhi Development Authority Act. Where was the need to
defer recovery of the second instalment from Skipper when it was admittedly in default
? When the matter has hardly contested before the Court, the D.D.A. adopted a
passive attitude and remained a bystander or an on-looker. If only it had taken
proper steps at the appropriate time, the money of the unwary purchasers would
not have fallen into the trap of the Skipper. Therefore, the conduct of the
officials of D.D.A. including its ex-Chairman prima facie appears to be
questionable This can be established only by a probe into the conduct of the
affairs of the D.D.A.
Turning to the role placed by then New Bank of India which has now merged in
Punjab National Bank, prima facie it appears to us that they have been 'far too
so generous' with public money. The Bank has to establish that it has acted as
a prudent banker. The liberality in advancement of loans and bank guarantees
creates an impression that 'there is something rotten'. How, bank guarantee
came to be furnished for the huge sum of the first instalment of Rs. 1,944 crores
is enigmatic. Again, in September, 1989 how a fresh bank guarantee was advanced
is equally enigmatic. Since, we have directed an enquiry into this, all that we
are constrained to observe is that caution and care in advancement of loans-
bank guarantee to Skipper Construction appear to have been thrown to winds.