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DDA Vs Kailash Nath - High Court of Delhi
DDA Vs Kailash Nath - High Court of Delhi
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different rates for different periods of delay on the amount outstanding. Accepting the
recommendation of the committee, vide Ex. P-8 dated Augusts 11, 1982, DDA informed
M/s. Kailash Nath & Associates as under:
DELHI DEVELOPMENT AUTHORITY
VIKAS MINAR
INDRAPRASTHA ESTATE
Regd. Ack. Due.
No. F.32(2)/82-Impl.
New Delhi......11 AUG 1982
From
V.M.BANSAL.
DY.DIRECTOR(CE).
To
M/s Kailash Nath & Associates,
1006 Kanchanchanga, Bldg.
18 Bara Khamba Rd., N. Delhi 110001
Sub: Auction of plot No. 2A Block No. -meas.897.84 sq.mtrs. in Bhikaji Cama
Place Distt. Centre.
Dear Sir,
In continuation of this office letter dated 18-2-82 & with reference to your
letter dated 18-5-82. It has been decided that extensions in payment of
balance premium of ` 2,34,00,000/-(Rupees two crores & thirty four lacs
only) has been given to you as under:) Without charging any interest upto 18-5-82.
) With interest @ 18% from 19-5-82 to 28-8-82 on the left out
premium.
) With interest @ 27% from 29-8-82 to 29-9-82 on the balance
premium.
) With interest @ 36% from 29-9-82 to 28-10-82 on the balance
premium.
You are now requested to make the balance payment to the D.D.A.
immediately alongwith interest as mentioned above.
Please note that no extension beyond period mentioned above is permissible
under any circumstances. In case you fail to make the payment of balance
premium alongwith interest as mentioned above, the bid shall automatically
stand cancelled and earnest money forfeited without any reference.
Yours faithfully,
(V.M.BANSAL)
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DY.DIRECTOR(CE)
4. The market appears not to have stabilized and the realty sector was still in trouble.
M/s. Kailash Nath & Associates and other bidders made representations to DDA praying
that time be further extended.
5. These requests were decided to be considered by DDA and yet another committee
was constituted to examine these requests, and vide resolution No. 24-A Ex. DW-2/P-3,
on January 13, 1983, the recommended that the auction purchasers should deposit a
sum equivalent to 50% of the bid amount within a period of 90 days from the date of
intimation and the balance amount in instalments as per the decision taken by the
committee.
6. DDA considered the recommendations of the committee at its meeting held on May
14, 1984 and vide resolution No. 121, Ex. DW-2/P-4, resolved that each individual
request would be considered on its own facts i.e. no collective decision would be taken.
7. Whereas DDA informed a few bidders that time had been extended qua them to
make payments of the balance bid amount, no communication was addressed to M/s.
Kailash Nath & Associates as also a few other bidders, and as regards M/s. Kailash Nath
& Associates it sent letters Ex. P-11 to Ex. P-18 between December 09, 1985 to October
10, 1987 to DDA, seeking information as to when it could pay the balance bid amount
and with what rate of interest.
8. DDA did not respond to these letters till December 01, 1987, when it wrote the letter
Ex. P-19 informing M/s. Kailash Nath & Associates that before its case was considered,
it should give its consent for making payment of balance amount of 75% bid amount
within the period to be fixed together with interest on the belated payment. The letter
reads as under:
"WITHOUT PREJUDICE"
F. No. (2)/S2/82-Impl.-I/4
DELHI DEVELOPMENT AUTHORITY
VIKAS SADAN
I.N.A.
NEW DELHI
From
DIRECTOR (C.L.)
DELHI DEVELOPMENT AUTHORITY
NEW DELHI...........198.....
To
M/s. Kailash nath & Associates,1006,
Kanchanjanga Bldg.,
18, Bara Khamba Road,
New Delhi-110001.
Sub: Regarding payment of balance premium in respect of Plot No. 2-A
situated in Bhikaji Cama Place Distt. Centre.
Sir,
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With reference to the above subject, I am directed to inform you that your
case for relaxing the provisions of Nazul Rules, 1981, to condone the delay
for the payment of balance premium in instalments was referred to the Govt.
of India, Min. of Urban Development. Before the case is further examined by
the Govt. of India, Min. of Urban Development, you are requested to give
your consent for making payment of balance amount of 75% premium within
the period as may be fixed alongwith 18% interest charges p.a. on the
belated payment. Further the schedule of payment and conditions if any will
be as per the directions issued by the Ministry of Urban Development, Govt.
of India. It is, however, made clear that this letter does not carry any
commitment.
Your consent should reach to this office within 3 days from the date of issue
of this letter.
Yours faithfully,
Sd/
DIRECTOR (C.L.)
9. M/s. Kailash Nath & Associates communicated its consent vide its letter dated
December 01, 1987, Ex. P-20, which reads as under:
KAILASH NATH & ASSOCIATES Tel.3312648,
3314269
1006, KANCHENJUNGA
18, BARAKHAMBA ROADNEW DELHI-110 001
Regd. Ack. Due.
December 1, 1987
The Director (C.L.),
Delhi Development Authority,
Vikas Sadan, I.N.A.,
New Delhi-110023.
Subject: Payment of balance premium in respect of plot No. 2-A Bhikaji
Cama Place Dist. Centre, New Delhi.
Dear Sir,
We are thankful to you for your letter No. F.30(2)/82-Impl.-I/4 dated nil
received by us this afternoon, on the above subject.
We hereby give our consent that we shall make the payment of the balance
amount of 75% premium within the period as may be fixed as per the
schedule of payment and conditions, if any imposed, as per the directions
issued by the Ministry of Urban Development, Govt. of India, alongwith 18%
interest charges per annum on the belated payment.
We now request you to kindly convey us your formal approval to our making
the said payment in instalments as requested for.
Thanking you,
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Yours faithfully,
For KAILASH NATH & ASSOCIATES,
Sd/Partner.
Advance copy sent through Special Messenger.
10. With respect to the plot for which M/s. Kailash Nath & Associates had made a bid,
the Central Government informed DDA on August 04, 1988 that the land was not Nazul
land and thus it had no role to play in the commercial decision required to be taken and
that it was for DDA to take the necessary decision.
11. Since M/s. Kailash Nath & Associates were not communicated any decision it sent a
representation Ex. P-21 on September 06, 1988, and receiving no response sent
another representation Ex. P-23 on February 02, 1989 requesting DDA to send
intimation as to by what date it could make payment and with what rate of interest.
12. It appears that M/s. Kailash Nath & Associates and a few other similar situate
bidders got information that DDA was intending to cancel their bids and forfeit the
earnest money deposited by them i.e. 25% of the bid amount and thus M/s. Kailash
Nath & Associates and a few other bidders filed a writ petition, registered as WP(C) No.
2395/1990 in this Court, alleging discrimination i.e. pleading that there was no
justification to grant extension of time to a few bidders and deny the same to a few and
for which instances were highlighted of those bidders who were granted extension of
time to pay the balance bid amount. It was urged that having assured that time would
be extended to make the payment, a statutory authority like DDA could not act
unreasonably and not only not extend the time to make the balance payment but even
forfeit the earnest money.
13. The writ petition was dismissed vide order dated September 02, 1993, Ex. P-24,
holding that the dispute pertained to a matter of contract and thus the writ petition was
not maintainable. Challenge before the Supreme Court failed.
14. After the writ petition was dismissed DDA sent a letter dated October 06, 1993, Ex.
P-26 informing M/s. Kailash Nath & Associates that the bid had been cancelled and
earnest money forfeited. The letter reads as under:
F.32(2)/82/CL/3816
New Delhi-23..........6/10/1993
From
DY. DIRECTOR (CL).
To
M/s. Kailash Nath & Assocaites,
1006, Kanchanjanga Building,
18, Bara Khamba Road,
New Delhi-110001.
Subject: Plot No. 2-A in Bhikaji Cama Place Distt. Centre.
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Sir,
Consequent upon your failure to deposit the balance 75% premium of the
aforesaid plot and dismissal of C.W.P. No. 2395 of 1990 by the Hon'ble High
Court, Delhi, I am directed to inform you that the bid/allotment of the said
plot in your favour has been cancelled and earnest money amounting to `
78,00,000/-deposited by you at the time of auction has been forfeited.
Yours faithfully,
(JAGDISH CHANDER)
DEPUTY DIRECTOR (CL)
15. M/s. Kailash Nath & Associates thereafter filed a suit praying for a decree of specific
performance requiring DDA to receive the balance bid amount and execute the sale
deed, and alternatively for damages in sum of ` 3.12 crores. Narrating aforesaid,
admitted facts, it was the case of M/s. Kailash Nath & Associates that having agreed as
per Ex. P-19 to consider time being extended for making the balance payment, without
notifying the extended time, DDA could not have cancelled the bid and forfeit the
earnest money as per Ex. P-26.
16. Suffice would it be to state the plea in law taken by M/s. Kailash Nath & Associates
was that notwithstanding time being of the essence of the contract, as per Ex. P-1,
requiring it to pay the balance bid amount within three months of the bid being
confirmed i.e. by May 18, 1982, since DDA agreed to shift the time for making payment
as per Ex. P-8 requiring the balance amount to be paid on various dates set out in Ex.
P-8, the last date being October 28, 1982 and thereafter having agreed vide Ex. P-19
on December 01, 1987 to consider favourably to extend the time to make the payment,
by its conduct and action DDA had waived even October 28, 1982 as the date by which
balance consideration had to be paid and unless DDA notified another date, making it
the date of the essence of the contract, DDA could not unilaterally terminate the
contract.
17. In response, DDA filed a written statement, inter-alia, taking the plea that it had
agreed to extend the time to make payment as per Ex. P-8 and that M/s. Kailash Nath
& Associates did not pay within the time granted therein and was thus in breach. As
regards its letter Ex. P-19, DDA pleaded that the same was sent without prejudice and
thus merely because it agreed to consider whether or not to extend the time to make
payment, it was not obliged to do so. DDA pleaded that the auction was governed by
The Delhi Development Authority (Disposal of Developed Nazul Land) Rules 1981 and
as per Rule 24 if the balance bid amount was not paid within 3 months of the bid being
confirmed, the same was liable to be cancelled and the earnest money forfeited. DDA
pleaded that the rules were statutory and being not challenged, the suit had to be
dismissed. Thus, in law it was the case of DDA that merely because it wrote that it was
willing to consider shifting the date which was of the essence of the contract, said act
by itself would not shift the date, which was of the essence of the contract, for the
reason this shifting of date had to be a bilateral agreement between the parties and
unless there was consensus ad-idem, there could be no unilateral shifting of the date,
which was of the essence of the contract.
18. On the pleading of the parties the following issues were settled for adjudication:
1. Whether the plaintiff is entitled to the relief of specific performance?
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essence of the contract, since DDA vide its letter Ex. P-19 written on December 01,
1987 agreed to consider to extend the time for making payment, DDA could not without
notifying a time for making payment cancel the bid and forfeit the earnest money,
which action has been held to be unreasonable; and for which view the learned Single
Judge has found sustenance in the decision reported as (1870) L.R. 10 Eq. 281 Webb v.
Hughes. The decision of the learned Single Judge concludes by decreeing the suit in
sum of ` 78 lakhs i.e. the earnest money paid by M/s. Kailash Nath & Associates to DDA
together with interest @ 9% per annum (simple) commencing from February 17, 1994
i.e. when the suit was filed, till realization. Since DDA sold the land ultimately in sum of
` 11.78 crores the learned Single Judge has taken the view that even if there was a
breach of the contract, DDA had suffered no loss and with reference to the decision of
the Supreme Court reported as MANU/SC/0081/1969 : AIR 1970 SC 1955 Maula Bux v.
UOI and noting Section 74 and Section 75 of the Contract Act has held that even on
said account DDA could not forfeit the security deposit.
25. Our job in the appeal is limited to decide, with reference to the legal contents of the
plea advanced by DDA and M/s. Kailash Nath & Associates respectively, which rival
pleas, with reference to their legal content have been noted by us in paras 17 and 18
herein above.
26. We re-note the legal contents of the rival submissions. Whereas M/s. Kailash Nath
& Associates urge that no doubt time was of the essence of the contract as per Ex. P-1,
but DDA extended the time for making balance bid sum vide its letter Ex. P-8, to
October 28, 1982 and thereafter vide Ex. P-19, on December 01, 1987, agreed to
consider extending the time. Thus, without notifying the extended time i.e. re-fixing the
date of the essence of the contract DDA could not revoke the contract and forfeit the
security deposit. Per-contra, DDA urges that within the extended time granted as per
Ex. P-8 i.e. October 28, 1982, since M/s. Kailash Nath & Associates did not make the
payment the contract was breached, entitling DDA to forfeit the earnest money and as
regards its letter Ex. P-19 DDA urged that merely because DDA intimated, and that too
making it expressly 'Without Prejudice' its willingness to consider further extending time
to make the payment, did not oblige it to do so and would not mean that it had waived
October 28, 1982 as the date by which the contract had to be finalized.
27. As noted by us, the learned Single Judge has decided in favour of M/s. Kailash Nath
& Associates by placing reliance upon the decision reported as (1870) L.R. 10 281 Webb
v. Hughes.
28. The decision reported as (1870) L.R. 10 Eq. 281 Webb v. Hughes concerned a
contract for sale requiring the sale to be completed on February 26, 1869 i.e. February
26, 1869 was the date of the essence of the contract. Before the said date arrived the
purchaser desired title documents to be shown or produced and the seller responded by
delivering an abstract of title, which was found to be incomplete. The solicitors of the
parties exchanged communications with respect to the title and the date February 26,
1869 expired. There was evidence that the parties continued to exchange
correspondence with respect to the title till April 20, 1869 and not being able to resolve
the issue, the suit was filed for specific performance. The suit was opposed on the plea
that the date February 26, 1869 was fixed by the parties by consent and was of the
essence of the contract and notwithstanding the defendant and the plaintiff, through
their solicitors, continuing to negotiate on the subject of title thereafter, would not
mean that the date for completion of the sale was extended. Decreeing the claim it was
held that by continuing to negotiate as to title after the date fixed for completion had
lapsed, the seller would be treated as having waived the date specified for contract to
be completed and could not rescind without reasonable notice i.e. without notifying a
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34. In the instant case, the learned Single Judge has missed out that when DDA agreed
to consider further time being extended as per its letter Ex. P-19 dated December 01,
1987, it expressly wrote at the top of the letter 'WITHOUT PREJUDICE' and this
distinguishes the facts of the instant case from those in Webb v. Hughes case (supra)
and brings the facts of this case similar to the facts in Tilley v. Thomas case (supra). It
may additionally be noted that in the letter Ex. P-19, DDA has expressly written : 'It is,
however, made clear that this letter does not carry any commitment.'
35. The learned Single Judge has opined that once DDA agreed as per Ex. P-19 to
consider extending time for M/s.Kailash Nath & Associates to make the balance sale
consideration, it would be unreasonable for DDA to not grant reasonable time for
payment to be made and straightway determine the contract.
36. Now, in India, reasonableness in State action is a facet of Article 14 of the
Constitution of India and in the field of contract would have a considerable play at the
pre-contract stage. Once parties have entered into a contractual obligation, they would
be bound by the contract and the only reasonableness would be of the kind envisaged
by the Supreme Court in the decision reported as MANU/SC/0018/1962 : AIR 1963 SC
1144 T.P. Daver v. Lodge Victoria No. 363 SC Belgaum & Ors. On the subject of a
member of a club being expelled, and the relationship being a contract as per the rules
and regulations of the club, adherence whereto was agreed to by he who became a
member of the club and the management of the club, the Supreme Court observed that
in such private affairs, it would be good faith in taking an action which is rooted in the
minds of modern men and women i.e. in a modern democratic society and no more.
The decision guides that where a private affair i.e. a contract is so perverted by a party
that it offends the concept of a fair-play in a modern society, alone then can the action
be questioned as not in good faith and suffice would it be to state that anything done
not in good faith would be unreasonably done.
37. The learned Single Judge has held that the property was ultimately auctioned in the
year 1994 at a price which fetched DDA a handsome return of ` 11.78 crores and there
being no damages suffered by DDA, it could not forfeit the earnest money.
38. The said view runs in the teeth of the decision of the Supreme Court reported as
MANU/SC/0086/1969 : AIR 1970 SC 1986 Shree Hanuman Cotton Mills & Anr. vs. Tata
Aircraft Ltd. which holds that as against an amount tendered by way of security,
amount tendered as earnest money could be forfeited as per terms of the contract.
39. We may additionally observe that original time to pay the balance bid
consideration, as per Ex. P-1 was May 18, 1982 and as extended by Ex. P-8 was
October 28, 1982. That DDA could auction the plot in the year 1994 in sum of ` 11.78
crores was immaterial and not relevant evidence for the reason damages with respect
to the price of property have to be computed with reference to the date of the breach of
the contract.
40. The appeal succeeds. The impugned judgment and decree dated September 10,
2007 is set aside. Suit filed by M/s.Kailash Nath & Associates is dismissed, but we leave
the parties to bear their own costs all throughout. Amount deposited by DDA under
orders of the Division Bench in the instant appeal be returned to DDA together with
interest accrued thereon.
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