& Modi Enterprises Pvt.Ltd. & Anr Vs. New Delhi Municipal Council  Insc 891 (31 August 2007)
Arijit Pasayat & S.H. Kapadia
APPEAL NO. 4002 OF 2007 (Arising out of SLP (C) No. 21183 of 2005) Dr. ARIJIT
Challenge in this appeal is to the order passed by a Division Bench of the
Delhi High Court dismissing the Letters Patent Appeal filed by the appellants.
Challenge before the Division Bench was to the order passed by a learned Single
Judge dismissing the Writ Petition filed by the appellants.
in the Writ Petition was to the order dated 13.11.2001 passed by the
respondent-New Delhi Municipal Council (in short
'NDMC'). By the said order, the appellants were held to be unauthorized
occupants of the premises in dispute namely, that of Chanakya Cinema Complex
situated in Diplomatic Enclave, New Delhi. Prayer was also to set aside the letter dated 22.1.2002 issued by the
NDMC seeking the vacant and peaceful possession of the aforesaid complex. The
resolution passed by the NDMC dated 28.8.2001 was also impugned to the extent
it allowed the appellants to continue in possession from 1st October, 2000 to
30th September, 2003 only. Prayer was also made for renewal of the lease/licence
of the appellants with the usual option for renewing the lease/licence on
appropriate terms and conditions. It is to be noted that appellant No.1
(hereinafter referred to as the 'company') was the original lessee while
appellant No.2 is the shareholder of appellant No.1-Company. The writ petition
was filed by the company through one of its Directors Shri Rajesh Khanna.
Learned Single Judge noted that whatever may have been the situation in the
past, the basic issue was whether the terms of lease permitted the tenancy beyond
30th September, 2003 as contended by the appellants. It
was held that the appellants' case was that renewal due in 2000 was to be
effective from 1st
October, 2000 on
mutually agreed terms. Since the terms have not been mutually arrived at, in
essence parties have not agreed to renewal in 2000. Undisputedly, the
appellants' case was a lease for fixed terms. The earlier two renewals were
therefore of no consequence. The licence granted to appellant No.1 was from
time to time and without premium. Specific periods were indicated in the terms
of licence itself. The writ application was accordingly dismissed. The order
was questioned before the Division Bench.
After analyzing the basic issue formulated for the dispute, the Division Bench
found no merit in the LPA and dismissed the same. The following observations
were made by the Division Bench.
No formal licence deed was also executed and there was no unqualified
acceptance to the offer contained in the NDMC's letter dated 2nd December, 1991. Therefore, in the eyes of law, no
valid licence was granted for the third block i.e. 1st October, 1990 to 30th
as it may, vide order dated 25th May, 2001
stay granted in CWP No. 3244/1992 was also vacated on the ground that even the
period of third block had come to an end. This petition was also dismissed as
withdrawn on 20th May,
2002. Even otherwise
the NDMC's letter dated 2nd
December, 1991 did not
contain any renewal clause. Therefore, contractually there was no entitlement
to seek renewal after 30th
September, 2000 and in
fact there was no such lease in operation under which this right could be
exercised. However, while vacating the stay vide order dated 25th May, 2001 since the Division Bench observed
that request of the appellants for renewal of the licence agreement for further
period be considered, the NDMC adverted to this aspect.
of the appellants included allowing them to convert the cinema complex into a
multiplex. Again, it was not in terms of lease that the question of 'extension'
of lease period was considered. But it was the request of the appellants which
was to be considered, and NDMC agreed to bestow its consideration in view of
the observations of this court in its order dated 25th May, 2001. As consideration of this request was to take some time,
the Council first passed resolution dated 28th August, 2001 extending the lease for a period of
three years i.e. from 1st
October, 2000 to 30th September, 2003 pending final decision on the
proposal of the appellants to redevelop the complex as multiplex-cum-commercial
center. This proposal was, thereafter, considered and vide impugned order dated
13th November, 2001 rejected the offer".
was noted that though offer of further renewal beyond 1st October, 1990 (third
block) was initiated by NDMC letter dated 2nd December, 1991, the response
dated 5.12.1991 was not an acceptance in the eyes of law and no further licence
deed/agreement was executed although offer dated 2nd December, 1991 clearly
stipulated that the same was subject to execution of fresh agreement. The offer
itself was challenged by the appellants by filing CWP No.3244/1992 clearly
meaning thereby that it did not accept the said offer. They continued in
possession because of stay orders granted in the writ petition; and in this
manner without a contract. Even the third block contained in the offer dated 2nd December, 1991 expired on 30th September, 2000. In that sense, there was no
agreement in existence and there was no subsisting lease or agreement written
or oral which gave any right to the appellants to seek further renewal under
Though many points were urged in support of the appeal, primary stand was that
true scope and ambit of Section 141(2) of the NDMC Act, 1994 (in short the
'Act') has not been kept in view and the manner in which NDMC is interpreting
it, goes against the intended legislative object. In any event, the appellants
have been ousted or discriminated or subjected to hostile treatment as in no
other case purported intention of public auction has been resorted to.
appellants had themselves suggested that they should be permitted to develop
the property on the basis of the consultant's report. NDMC owns various
properties but the complex in question is the only cinema hall it has.
the purpose of renewal, the parameters are different and it cannot only be
restricted to public auction. Appellants have been in occupation for long
period. If ultimate object is development, the present occupants would have
preference. If the scheme is acceptable to the occupants its offers should be
consideration for which any immovable property may be sold, leased or otherwise
transferred shall not be less than the value at which such immovable property
could be sold, leased or otherwise transferred in normal and fair competition
essence, it means that the lease amounts should not be less than the market
value. The expression in the renewal clause on which great emphasis is led
speaks of "terms and conditions to be mutually agreed upon".
According to the appellants it cannot mean that one of the parties can
stipulate unreasonable terms and conditions. In essence, the terms and
conditions have to be fair. While determining the fair value the amount is what
the existing tenant is required to pay. NDMC itself had required payment of
Rupees two crores per year. The requirements of Section 141 (2) cannot apply to
a case of renewal. It is submitted that the appellants have been spent more
than rupees three crores after 2000. Though there has been no renewal the High
Court noted that discriminatory treatment is being meted out to the appellants
and, therefore, it had directed the respondent-NDMC to give instances where
public auction had been resorted to.
essence, it is submitted that the appellants should be given an opportunity
first to pay the fair price and not the public auction price. The public body
cannot resort to public auction just with profit making motive.
Learned counsel for the NDMC on the other hand submitted that initially there
was a licence deed containing renewal clause. For the subsequent tenures also
there was such a deed with renewal clause. After that no agreement or lease had
been actually executed. For 18 years beginning from 1981- 82 the appellants
were indulging in litigation and the prayer was to set aside the licence deed.
In fact, in the plaint originally filed in the suit, it was averred that the
deed was executed under coercion. Similar was the plea in the subsequent suits.
It is pointed out that there was no pre-emptive right. One of the objectives of
NDMC was to have retail mall cum multi-plex. The financial capacity of the
appellants is not sufficient, they have no expertise in the intended
activities. At the most, they have some experience in running a uniplex. There
was no unconditional acceptance of terms offered in 1990 and no licence or
agreement was executed after 1990. The writ petition was filed in 1992.
Several factors need to be noticed before we deal with the scope and ambit of
What in essence the appellants are seeking for is specific performance of the
purported contract without filing a suit.
there is no renewal since long and in any event if appellants' case is accepted
there is no agreement after 2003. In that sense, the auction would be the first
NDMC is proposing to have multiplexes whereas the present arrangement is one of
uni-plex. The reason as to why NDMC wanted to have resort to public auction is
spelt out in the resolution dated 30th August, 2000. Para 2 of the resolution reads as follows:
the period of Asian Games, Ministry of Urban Development transferred some plots
of land to NDMC for construction and commissioning of Hotels on certain terms
and conditions and later on NDMC licensed these premises for above purposes to
eminent companies for long periods of 99 years subject to renewal of license
fees after every 30 years.
there are other establishments, like cinema in Chankya Complex where the land
was transferred long back by the Ministry of Urban Development to NDMC for
developing multiplex buildings. The premises have been transferred on license
for particular periods.
premises had been licensed before the enactment of NDMC Act 1994."
Similarly, in respect of specified group of premises with the
Ministries/Government Departments, renewal was to be done at enhanced rate of
10% p.a. or the Central
PWD enhanced rates,
whichever is higher.
Strong reliance has been placed by learned counsel for the appellants on a
decision of this Court in Jamshed Hormusji Wadia v. Board of Trustees, Port of Mumbai and Anr.
(2004 (3) SCC 214), more particularly, para 14. The same reads as follows:
Bombay Port Trust is an instrumentality of State and hence an
"authority" within the meaning of Article 12 of the Constitution. (See
Dwarkadas Marfatia and Sons v. Board of Trustees of the Port of Bombay). It is
amenable to writ jurisdiction of the court. This position of law has not been
disputed by either party.
consequence which follows is that in all its actions, it must be governed by
Article 14 of the Constitution. It cannot afford to act with arbitrariness or
capriciousness. It must act within the four corners of the statute which has
created it and governs it. All its actions must be for the public good,
achieving the objects for which it exists, and accompanied by reason and not
whim or caprice."
Undisputedly, there was no provision like Section 141 (2) involved in that
case. The parameters of limitation in Section 141 (2) relate to public auction.
Undisputedly, the appellants have participated in the public auction
originally. In Wadia's case (supra) the tenancy continued but in the present
case there is fresh auction.
For appreciating the true scope and ambit of Section 141(2), it is to be noted
that by nature of the proposed changes it has to be treated as fresh
transaction particularly when not only the nature of property changes but also
the lease has expired. Though strong reliance was placed on a resolution dated
18.3.1999 by the appellants, it is to be noted that the said resolution has
practically no effectiveness in 2006.
the order of Chairman, NDMC dated 13.11.2001 it was noted as follows:
Cinema complex is one of the prestigious buildings owned by the NDMC, which is
located in Chanakyapuri area on a part of land parcel measuring several acres
wherein prestigious buildings such as Akabar Hotel etc. are situated.
was given for running the cinema to M/s Aggarwal & Modi Enterprises (Cinema
Project) Pvt. Ltd., hereinafter referred to as the Company vide Agreement dated
03.10.1967 which was renewed from time to time and which finally expired on
30.9.2000. The licence fee last paid was fixed at Rs. 15,15,000/- per annum.
Company is, however, still in occupation of the aforesaid premises and has
sublet various portions of the Chanakya Cinema complex to others such as Nirulas
Hotel, Jewellery shops besides permitting advertisement even inside the cinema
complex to other parties at huge premiums. Besides this, they have also leased
out parking lot inside and outside cinema complex. The company has also been in
constant litigation with NDMC in all these years primarily questioning licence
fee though it was fixed in accordance with terms of the agreement initially
entered into between the parties and as per the policies of the NDMC laid down
by the Council from time to time. In any event, the licence fee stands paid by
company till 30.9.2000 though two matters are still pending which pertain to
the revision of the licence fee.
the course of litigation, the courts had been passing interim order restraining
the NDMC from taking any action against the company to dispossess them from the
cinema complex but the said orders were vacated on 25.05.2001 subject to the
condition that NDMC will consider the representation made in the meanwhile by
company giving certain proposals to redevelop cinema complex and/or
continuation of licence in their favour for running the cinema.
meeting of Council held on 30th August, 2000,
a decision has already been taken that the present term of licences of
hotels/cinemas and other similar commercial complexes, shall not be renewed on
the expiry of the present term and fresh licence shall be as per the provisions
of Section 141(2) of NDMC Act, 1994.
view to comply the directions of the Hon'ble High Court, feasibility of
developing the property as Multiplex as proposed by the company was also
considered by NDMC. We also decided to give personal hearing to an authorized
representative of the company before disposing of their representation dated
05.04.2000 and 14.03.2001. Shri Aditya Khanna & Vikas Jalan appeared before
me personally on 17.10.2001 and reiterated the submissions made in the
renew the licence of the cinema complex on the existing terms and/or;
permit the company to develop the cinema complex in a Multiplex by investing
their own funds and assured the Council that they will be in a position to pay
Rs.1.80 crores per annum as licence fee.
is to be noted that the lease deed prior to 1994 was to be renewed in the light
of 1994 Act. That being so, the resolution dated 30.8.2000 as quoted above has
certain significant relevance.
Section 141(2) of the Act reads as follows:
The consideration for which any immovable property may be sold, leased or
otherwise transferred shall not be less than the value at which such immovable
property could be sold, leased or otherwise transferred in normal and fair
The mandate of Section 141(2) is that any immovable property belonging to NDMC
is to be sold, leased, licensed or transferred on consideration which is not to
be less than the value at which such immovable property could be sold, leased,
or transferred in fair competition. The crucial expression is "normal and
fair competition". In other words, NDMC is obligated to adopt the
procedure by which it can get maximum possible return/consideration for such
immovable property. The methodology which can be adopted for receiving maximum
consideration in a normal and fair competition would be the public auction
which is expected to be fair and transparent.
auction not only ensures fair price and maximum return it also militates
against any allegation of favouritism on the part of the Government authorities
while giving grant for disposing of public property. The courts have accepted
public auction as a transparent mean of disposal of public property.
State of UP v. Shiv Charan Sharma (AIR 1981 SC 1722), Ram and Shyam Company v.
State of Haryana (1985 (3) 267), Sterling Computers Ltd. v. M & N
Publications Ltd. (1993 (1) SCC 445), Mahesh Chandra v. Regional Manager, UP Financial
Corporation (1993 (2) SCC 279), Pachaivappa's Trust v. Official Trustee of
Madras (1994 (1) SCC 475), Chairman and M.D. SIPCO, Madras v. Contromix Pvt. Ltd. (1995 (4)
SCC 595), New India Public School v. HUDA (AIR 1996 SC 3458), State of Kerala v. M. Bhaskaran Pillai (1997 (5)
SCC 432) and Haryana Financial Corporation v. Jagdamba Oil Mills (2002 (3) SCC
Disposal of public property partakes the character of trust and there is
distinct demarcated approach for disposal of public property in contradiction
to the disposal of private property i.e.
should be for public purpose and in public interest. Invitation for
participation in public auction ensures transparency and it would be free from
bias or discrimination and beyond reproach.
Above being the position, the judgments of learned Single Judge as affirmed by
the Division Bench do not suffer from any infirmity to warrant interference.
The appeal is sans merit, deserves dismissal which we direct. However,
considering the long period of occupation, which is presently without legal
sanction, the appellants are granted time till 31st December, 2007 to deliver
vacant possession to the respondent-NDMC.
have not expressed any opinion on the aspect relating to dues of the appellants
to the NDMC, as they are stated to be pending adjudication in other disputes.