Holding

The Supreme Court held that the Division Bench was correct in setting aside the Single Judge's order; there was no illegality or arbitrariness in the sanctions, and the DDA lacked authority to re‑prescribe parking standards, so the appeal is dismissed.

Summary

The Greater Kailash Part‑II Welfare Association challenged the municipal sanction and various clearances granted to DLF Universal Ltd for converting the Savitri Cinema Hall into a mini‑cinema‑cum‑commercial complex, alleging that the plan would cause traffic congestion and violated parking standards under the Delhi Master Plan. The petitioners sought quashing of the building plan sanctions and a mandamus restraining the construction. The Delhi High Court Single Judge directed the Delhi Development Authority (DDA) to determine parking requirements, finding the sanction mechanically granted and insufficient. On appeal, the Division Bench held that the Single Judge had acted as an appellate body, that the sanction complied with the Building Bye‑Laws, Master Plan, and Cinematograph Rules, and that the DDA had no jurisdiction to re‑prescribe parking standards. The Supreme Court affirmed the Division Bench, noting no illegality or shockingly arbitrary action by the municipal authorities, and dismissed the appeal. The Court emphasized that a landowner may use his plot for any lawful purpose once all statutory approvals are obtained, and future traffic concerns can be addressed by the competent authorities if needed.

Issues considered

The legality of the Delhi High Court Single Judge directing the DDA to determine parking standards for the project
Whether the building plan sanctions and clearances complied with the Delhi Master Plan, Building Bye‑Laws and Cinematograph Rules
Whether anticipated traffic congestion alone can justify quashing the sanction under Article 226
The jurisdiction of the Delhi Development Authority under the DDA Act to prescribe parking requirements for a cinema‑commercial complex
The scope of writ jurisdiction to interfere with executive decisions absent clear illegality or arbitrariness

Legislation cited

Constitution of Indias. Article 226
Delhi Development Authority Act, 1957s. Section 12, s. Section 7
Delhi Municipal Corporation Acts. Section 336

Subjects

traffic congestionparking standardsbuilding bye‑lawsDelhi Master Planwrit jurisdictionArticle 226urban planningcinema hall conversionDelhi Development AuthorityDelhi Urban Art Commissionmunicipal sanction

Judgment

A GREATERKAILASH PART-II WELFARE ASSOCIATION AND ORS. ,.\
v.
DLF UNIVERSAL LTD. AND ORS.

MAY 15,2007

B [C.K. THAKKERANDALTAMASKABIR,JJ.]

.,.
Constitution of India, 1950:

Article 226-Writ jurisdiction-Existing cinema hall renovated as
..
_,..._

c cinema hall-cum-commerical complex after obtaining all requisite approval
and clearances from municipal authorities and after approval of sanction
plan-Welfare Association of residents of colony situated near cinema plot
filing writ petition seeking quashing of the building plans on the ground of
apprehension of traffic. congestion and inconvenience and hardship to
residents on account of renovated complex-Interference-Held, sanction
D
granted strictly in accordance with Rules and Building Bye-Laws-Clearance
ulso obtained from DCP (Traffic) on the specific problem apprehended by
,.
petitioners-Owner ofplot entitled to use and utilize the same for any lawful
purpose and to erect construction in accordance with existing rules-No
-( ,_
deviation from the building plan as sanctioned alleged-Authorities
E considering parking space set apart in the renovated complex to be sufficient
to meet the requirements so as not to cause any problem of traffic congestion
as apprehended-In the facts, held, no interference under writ jurisdiction
called for-Delhi Master Plan, 1990-Building Bye Laws, 1983-Delhi
Cinematograph Rules, 2002-Delhi Urban Art Commission Act, 1973-Section
11-Delhi Development Authority Act, 1957-Section 12.
F
The Savitri Cinema Hall owned by respondent No. 1 had been operating
on the Plot situated at the T-junction of Outer Ring Road and the main entry "'
~
point to the colonies of Greater Kailash Part-II, Alaknanda Complex,
Mandakini Enclave and Chittaranjan Park for about 30 years. The cinema
G hall was closed in 1997 and subsequently, a decision was taken by the
respondent No. 1 to convert the Savitri Cinema Hall into a smaller capacity ....
mini cinema hall with modern features and facilities. The respondent No.I
submitted its alteration/renovation plans to the Municipal Corporation of Delhi

H
(MCD) for requisite sanction and as required by the MCD, the respondent

648
/(
..,
GREATER KAI LASH PART ·11 WELFARE ASSOCIATION >. DLF UM\'ERSAL LTD 649
... • No.I duly obtained approval from Delhi Urban Arts Commissions, No
A
Objection Certificate from the office of DCP Traffic Delhi, No Objection
Certificate from Delhi Fire Service, No Objection Certificate from BSES
Rajdhani Power Ltd., Provisional Clearance Certificate from the office of DCP
Licensing (Cinema) Delhi. On the basis of the said clearances and being
satisfied that the Building Plans were in consonance with the Building Bye
Laws 1983, Master Plan 2001 and Delhi Cinematograph Rules, 2002, the B
MCD accorded sanction to the said plains. Tke respondent No. 1 completed
renovation ofSavitri Cinema as per the sanction granted by MCD and applied
~ for Completion Certificate.
..._
The appellants-Greater Kailash Part-II Welfare Association and its
office-bearers at this stage filed four Writ Petitions in the Delhi High Court c
complaining of change of user of the Savitri Cinema Plot by converting it
into a multiplex-cum-commercial complex and seeking quashing of sanction
of building plans and also clearances and sanctions granted alleging that the
respondent No. 1 was converting the single screen cinema hall into a mutiplex-
cum-commercial complex with four cinema haUs which would result in a much D
larger number of visitors to the complex, which, in turn, would cause serious
""f traffic problems and congestion causing great hardship to the inhabitants of
the colonies around the Savitri Cinema Plot and that the construction of the
....,._
mutiplex-cum-commerical complex was also in violation of the Master Plan
of Delhi, the Building Bye-laws and Cinematograph Act, 1952. Respondent
No. 1 filed counter affidavit stating that the writ petitions were misconceived E
as the respondent No. 1 had decided to convert the existing Savitri Cinema
Hall, which had provision for 1000 seats, into a single screen mini cinema
hall with only 300 seats after obtaining sanction from the Municipal
authorities which would lead to a substantial reduction in the number of seats
in the cinema hall and which would also reduce the number of visitors to the F
,, cinema complex.
.>-
Single Judge holding that the Delhi Master Plan did not lay down the
parking standards for buildings to be used both as a cinema hall and a
commercial complex and in such cases as per Note I of the Parking Standard
as indicated in the Delhi Master Plan 1990, the same would be prescribed by G
the authority depending upon the merits and requirements of each individual
case and that the respondent authorities had mechanically granted sanction
'.)\ to the plan and had not examined the matter in regard to applicability of the
relevant parking standards with required seriousness disposed of writ
petitions giving directions to the respondent authorities including Delhi
H
..
650 SUPREME COL'RT REPORTS (2007] 6 S.C.R.

A
Development Authority (ODA) to re-consider the parking standard and to
incorporate the same in the sanction plan and in the meanwhile restrained
·*' -·
the respondent No.I from acting on the basis of the sanction granted.
Respondent No.I challenged the order of the Single Judge in Writ Appeal.
Division Bench allowed the appeal inter alia holcling that the Single Judge
had practically sat as a court of appeal over the decisions of the executive
B authorities as whether the relevant standards and requirements had been met
was <>rdinarily for the concerned authorities to look into and not for the Court,
unless there was a clear violation of law or something shockingly arbitrary;
and that there wa~ no illegality nor any shocking arbitrariness in the orders ..
passed by the Municipal Corporation of Delhi or the other authorities. Hence ,ii.

this appeal by the Welfare Association and its office bearers.
c
Appellants inter alia contended that parking standard for a cinema hall-
cum-commerical complex had not been prescribed under the Delhi Master
Plan, I 990; that OCP (Traffic) had mechanically given his consent to the plan;
and that they would be satisfied if they are given an opportunity of hearing by
D the Delhi Urban Art Commission (DUAq so that they could explain the ground
realities of the fall-out of the sanction granted to for conversion of the Savitri
Cinema Hall into a Mini Cinema Hall-cum-Commerical Complex. .,.

Respondent No. I inter alia contended that parking space that had been -<
provided for in the sanctioned plan was in excess of the parking standard
E contemplated under the Delhi Master Plan, I990; that Delhi Development
Authority which had been directed by the Single Judge to calculate and specify
the space to be kept apart for parking in the renovated complex was not
empowered to do so; that it was not open to the writ petitioners to raise
objection to the renovated complex merely on the apprehension of likelihood
of traffic congestion; that appellants were guilty of delay and laches as sanction
F had been granted as far back as on 4.12.2002 but writ petitions were only
y
filed in December, 2004 after the renovation had already been completed; that
DUAC had no role to play in the grant of sanction to the building except to '1'
the extent of maintaining and preserving aesthetic quality of such building
plan; and that DUAC in its affidavit had stated that the grounds indicated by
G the writ petitioners in the special leave petition were misconceived and the
petition deserved to be dismissed.

Dismissing the appeal, the Court
,-<
HELD: 1. From the materials on record there is no ambiguity that
H sanction was granted to the respondent No.I to make the above-mentioned
GREATER KAJLASH PART-II WELFARE ASSOCIATION•·. DLF L'l'<1VERSAL LID 651
..... ~
conversion strictly in accordance with the Rules and Building Bye Laws, even
A
to the point of consultations by the Deputy Commissioner of Police
(Licensing) with the Deputy Commissioner of Police (Traffic) on the specific
problem apprehended by the appellants. It is only after clearance was obtained
from the Deputy Commissioner of Police (Traffic) that a No-Objection
Certificate was issued by the Deputy Commissioner of Police (Licensing) and
sanction was granted by the Municipal Corporation of Delhi. The decision of B
Deputy Commissioner of Police (Traffic) and the Municipal corporation who
.... ...
'
are the experts in such matters is to be respected .
[Para 50) (667-A, B, CJ
>
2. Apart from the above, the Delhi Urban Art Commission (DUAC)
appears to have considered the objection made on behalfof the appellants in c
its meeting held on 12th November, 2003 and after hearing all concerned,
the Commission had decided to refer the matter to the Standing Sub-
Committee on Traffic, Transportation Proposals for the purpose of considering
all aspects of the proposal with the broad object of providing more parking
space in view of the need of extensive parking for this kind of a complex. D
Moreover, the DUAC had in its affidavit filed in the proceedings stated that as
-,-
- -y
far as DUAC is concerned, the grounds indicated by the writ petitioners in
the Special Leave Petition are misconceived and the Special Leave Petition
deserved to be dismissed. [Para 51 J [667-D, E)

3. The owner of a plot of land is entitled to use and utilize the same for E
any lawful purpose and to erect any construction thereupon in accordance
with the existing rules. So long as such owner does not contravene any of
the provisions which restrict his use of the plot in any manner, he cannot be
prevented from utilizing the same in accordance with law. In this case, the
respondent No.1 which is the owner of the plot in question cannot be denied
F
the use of the plot on account of the apprehension of the appellants, particularly
"'!'
when he has already raised the structure in accordance with the sanctioned
r
plan. It is not the case of the appellants that the respondent No.1 has in any
manner deviated from the building plan as sanctioned. The grievance of the
appellants is confined to the possible problem that may arise from the use of
the building as a Cinema Hall-cum-Commerical Complex. Once the authorities G
who are competent to do so have indicated that the apprehension was
unfounded, it is not for the Writ Court to interfere with such decision.
-)\ [Para 52) [667-F, G; 668-A)

4. Although, the parking standards under the Delhi Master Plan, 1990,
H
652 SUPREME COURT REPORTS [2007] 6 S.C.R.
A... .,.
A do not specify the parking space to be set apart for a Cinema Hall-cum-
Commerical Complex, the Municipal authorities, who are the sanctioning
authorities of any building plan, have considered the parking space set apart
for the renovated complex to be sufficient to meet the requirements so as not
to cause any traffic congestion as apprehended. In fact, the Delhi Development
Authority to whom a direction has been given by the learned Single Judge in
B terms of Note I of the Parking Standards prescribed under the Delhi Master
Plan has little or no role to play in the sanctioning of the building plan. Such
a direction is misconceived and cannot be sustained. The Division Bench was
justified in observing that the learned Single Judge had in effect sat in appeal
over the decision of the Executive authorities which he was not entitled to do
t
..., -
c in law. [Paras 53 and 54] [668-B, C, D]

5. If, however, in future the necessity so arises, the concerned authorities
will be at liberty to take appropriate steps to contain any problem that may
arise, in accordance with law. [Para 55] [668-E]

CIVIL APPELLATE JURISDICTION: Civil Appeal No. 2520 of2007.
D
From the Final Judgment and Order dated 17.01.2006 of the High Court ~

of Delhi New Delhi in LPA No. 2633 of2005. ..
~
U.U. Lalit, P. Venugopal, Pritish Kapur, and Dileep P. (for K.J. John &
Co.) for the Appellants.
E
Arun Jaitely, Pravin Bahadur, Meghalee Barthakur, Kanika Gombi, Rajan
Narain, Sanjiv Sen, Praveen Swarup, Subhash Bansal, R.G. Srivastav, Balraj
Dewan, B.B. Singh, Vimla Sinha, D.S. Mabra and Anil Katiyar for the
Respondents.
F
The Judgment of the Court was delivered by
~

ALTAMAS KABIR, J. I. Leave granted. -{

2. This appeal involves the apprehension of serious traffic problems by
the residents of Greater Kailash Part -II, Alaknanda Complex, Mandakini
G
Enclave and Chittaranjan Park on account of the change of user of the plot
situated at the junction of Outer Ring Road and the main entry point to the
aforesaid colonies on which the Savitri Cinema is located. The said plot,
(hereinafter referred to as the 'Savitri Plot' ), though situated in a residential
;<-
area, was earmarked as a cinema complex in the Delhi Master Plan at the
H initial stage when Greater Kailash Part -II was being developed.
GREATER KAILASH PART-II WELFARE ASSOCIATION"· DLF UNIVERSAL LTD (ALT AMAS KABIR, J] 65)

- 3. The appellant No. I herein is a society duly registered under the A
Societies Registration Act and claims to have over 3400 members who are all
residents of Greater Kailash Part II Colony.

4. There is no dispute that that the Savitri Cinema Hall had been
operating on the Savitri Cinema Plot ever since the Greater Kailash Part II
Colony had come into existence, that is, for a period of about thirty years. B
The cinema hall was closed in 1997 by the respondent No. I after a fire broke
out in the Uphaar Cinema complex. Subsequently, a decision was taken by
... the respondent No. I to convert the Savitri Cinema Hall into a smaller capacity
mini cinema hall with modem features and facilities. The respondent No. I
submitted its alteration/renovation plans to the Municipal Corporation of
Delhi (hereinafter referred to as 'MCD') for requisite sanction. As required C
by the MCD, the respondent No. I duly obtained the following clearances :-

(a) Approval from Delhi Urban Arts Commission on 24.9.2001;

(b) No Objection Certificate from the office of DCP Traffic, Delhi on
u.2002; D
(c) No Objection Certificate from Delhi Fire Service on 9.9.2002;

(d) No Objection Certificate from BSES Rajdhani Power Ltd. on
30.10.2002;

- (e) Provisional Clearance Certificate from the office of DCP Licensing E
(Cinema), Delhi on 29.11.2002.

5. On the basis of the above and being satisfied that the Building Plans
were in consonance with the Building Bye Laws 1983, Master Plan 200 I and
Delhi Cinematograph Rules, 2002, the MCD accorded sanction to the said F
plans on 4th December, 2002 with a direction that such renovation should
be completed by 3rd December, 2004.

6. It also appears from the materials on record that as per the sanction
granted by MCD, the respondent No. I completed the renovation of Savitri
Cinema within the time prescribed and applied to the MCD for Completion G
Certificate on 2nd December, 2004.

7. It is at this stage that the appellants herein filed four Writ Petitions,
being Nos.19798-19801/2004, in the Delhi High Court in the month of December,
2004, inter-alia, complaining of the change of user of the Savitri Cinema Plot
H
654 SUPREME COURT REPORTS (2007) 6 S.C.R.

A by converting it into a multiplex -cum- commercial complex.
8. The case made out in the writ petitions was that the respondent No. I
-
herein was converting the single screen cinema hall into a multiplex -cum-
commercial complex with four cinema halls which would result in a much
larger number of visitors to the complex, which, in tum, would result in a
B larger number of vehicles being parked in and around the complex and
particularly on the road branching off from Outer Ring Road as the entry point
into Greater Kailash Part II and the other colonies situated in the area. It was
also the case of the writ petitioners that the said entry point from Outer Ring
Road being a single entry point into the colonies it is already congested and
there are continuous traffic jams causing great hardship to the inhabitants of
C the aforesaid colonies. According to the writ petitioners, the congregation
of more vehicles on the already congested entry point would cause a complete
breakdown of the traffic system both to and from the colonies in question
and also on Outer Ring Road notwithstanding the construction of a flyover
at that particular point.
D
9. Complaining that the construction of the multiplex -cum-commercial
complex was also in violation of the Master Plan of Delhi, the Building Bye-
laws and the Cinematograph Act, 1952, the writ petitioners, inter alia, prayed
for the following reliefs :

E "(i) Certiorari quashing the sanction of building plans for additions/
alterations in the existing building and for conversion into a multiplex
mini cinema-cum-commercial complex at Savitri Cinema point, Greater
Kailash Part II, New Delhi 1I0048 issued in favour of Respondent
No.7;

F (ii) Mandamus restraining Respondent No.7 from raising construction
of multiplex mini cinema-cum-commercial complex in place of the pre-
existing Savitri Cinema in Greater Kailash Part II, New Delhi 110048;

(iii) Certiorariquashing the clearances and permissions granted to
the building Plans for addition/alterations and construction of a mini
G multiplex-cum-commercial complex submitted by Respondent No.7 to
the Respondent Authorities at Savitri Point, Greater Kailash-11, New
Delhi;

(iv) Mandamus directing the Respondent Authorities to discharge
their statutory obligations and duties in respect of the parking and
H traffic circulation matters raised by the Petitioners."
GREATER KA!LASH PART-II WELFARE ASSOCIATION'· DLF UNIVERSAL LTD (ALTAMAS KABIR. J J 655

10. The writ petitions were duly contested by the respondent No.I A
herein by filing a counter affidavit in which it was contended that there was
absolutely no substance in the averments and submissions made in the writ
petitions.

11. It was also contended that the writ petitions were based on a
mistaken impression that the respondent No. I was converting the existing B
single screen Savitri Cinema into a multiplex cinema complex having four
cinema screens which would lead to a considerable increase in the number
of cinema seats and the number of people who could visit the cinema
complex, which in tum, would lead to traffic congestion at the T junction
where the cinema hall was situated. It was stated in the affidavit that the C
writ petitioners were also under an impression that the alteration and/or
renovation of the Savitri Cinema Hall was being carried on by the respondent
No. I without obtaining statutory clearances and in contravention of the
existing Building Bye laws.

12. It was stated that both the above-mentioned apprehensions were D
incorrect and the respondent No.I had decided to convert the existing Savitri
Cinema Hall, which had provision for 1000 seats, into a single screen mini

- cinema hall with only 300 seats after obtaining sanction from the Municipal
authorities. In fact, there would be a substantial reduction in the number of
seats in the cinema hall which would also reduce the number of visitors to
the cinema complex. E

13. The learned Single Judge proceeded to dispose of the writ petitions
upon holding that while the existing capacity of the cinema hall was to be
reduced considerably, the remaining portions of the renovated structure
consisting of six storeys was to be used pre-dominantly as a shopping/
commercial complex. The learned Single Judge noted the fact that the
F
ground-floor plan disclosed a vast shopping area and the sanctioned plan
indicates that the entire ground-floor was to be converted into a departmental
store. The learned Judge observed that the mini cinema hall was only a small
part of the proposed alterations of the building and that the rest of the areas
were to be utilized as shops or as commercial spaces. G
14. The learned Judge also took note of the fact that the parking norms
as indicated in the Delhi Master Plan, 1990, read with the Building Bye-laws
-)\ and the Delhi Cinematograph Rules, 2002, were in apparent conflict with each
other and, in fact, the Master Plan while enumerating the parking standard
for the different categories indicated in the Master Plan, did not indicate the H
656 SUPREME COURT REPORTS [2007] 6 S.C.R.

A parking space required to be reserved for a building which was pre-dominantly
to be used for commercial/shopping purposes and only a small space was
to be utilized as a cinema hall. Based on his aforesaid observations, the
learned Single Judge held that the claim by the Delhi Police and the respondent
No. I about proper compliance with the parking norms was not accurate and
that after reserving certain spaces for scooters and motor-cycles. the aggregate
B space required to be reserved for parking would be I 04 Equivalent Car Space
(hereinafter referred to as "ECS"), while the sanctioned plan provided for 93
ECS.

15. The learned Single Judge noted the fact that while prescribing
C parking standards for different establishments, the Delhi Master Plan had not
laid down the standards for buildings to be used both as a cinema hall and
a commercial complex. In such cases, however, Note I of the Parking
Standard provided that where such parking standard had not been prescribed,
the same would be prescribed by the authority depending upon the merits
and requirements of each individual case. The learned Single Judge held that
D the role of the Delhi Development Authority as the Authority designated by
the said Note in the table appended to Clause 8 (4), had escaped the notice
both of the Municipal Corporation of Delhi as well as the Government of the
National Capital Territory of Delhi. The learned Single Judge observed that
even the Delhi Development Authority had returned the reference made to it
E in May 2002 stating that it had no role to play in the matter. After considering
the submissions made on behalf of the respective parties, the learned Single
Judge came to the conclusion that the respondent-authorities had mechanically
granted sanction to the plan submitted by the respondent No. I and had not
examined the matter in regard to applicability of the relevant parking standards
with the required seriousness. The learned Single Judge felt that the position
F of the plot, in the sense of its being at the entry point to several colonies,
the number of existing vehicles in those colonies, the number of religious
and educational institutions, were all relevant factors which should have been
taken into consideration while granting sanction to the plan, at least from the
parking angle. On the basis of his aforesaid findings, the learned Single
G Judge disposed of the writ applications with the following directions:-
"(a) The impugned sanction granted to the seventh respondent shall
not be operat«;d upon;
(b) The respondent Municipal Corporation of Delhi shall refer the
issue of parking in the mini-theater complex, along with details of /-
H the plans approved by it, to the Delhi Development Authority,
GREATER KAILASH PART-U WELFARE ASSOCIATION•·. DLF UNIVERSAL LID. (AL TAMAS KABIR. l.] 65 7

.. ..... which shall take its decision and indicate the appropriate parking
A
standard having regard to all relevant factors, such as location
and size of the plot; its being an entry point from the Outer Ring
road. to a number of colonies, containing residential structures,
educational and religious institutions, etc. if page 1744 necessary,
the DDA shall indicate the additional parking requirements. and
the underground coverage required for the purpose; B
(c) The DDA shall also consider the issue of exit from the cinema
complex, and the likely inconvenience to or friction that would
ensue to the local residents;
....-<I (d) The MCD shall make a reference within a period of 3 (three)
weeks to the DDA, which shall decide the matter, and formulate
c
a suitable parking norm in respect of the plot in question;

(e) The decision of the DDA shall be suitably incorporated in the
plans sanctioned in favour of the respondent No.2, within a
period of 4 weeks after receipt of its order by MCD;
D
(f) The directions at sub-para (a) above shall cease to subsist, upon
...., steps having being taken, as per sub-paras (c) to (e) above; the
respondents shall ensure that constructions/alteration to the
-~ cinema complex is in strict conformity with the changed plans; as
per the decision of DOA."
E
16. As will be evident from the above, the respondent No. I was restrained
from acting on the basis of the sanction granted till such time as the other
directions of the learned Judge were complied with.

17. Aggrieved by the judgment passed by the learned Single Judge on
18th October, 2005 and the directions made therein, the respondent No.I F
herein filed a Writ Appeal against the said judgment in the Delhi High Court,
being LP.A. No. 2633/2005.

18. The Division Bench took the view that the learned Single Judge had
practically sat as a court of appeal over the decisions of the executive
authorities. The Division Bench observed that whether the relevant standards G
and requirements had been met was ordinarily for the concerned authorities
to look into and not for the Court, unless there was a clear violation of law
-,\. or something shockingly arbitrary. The Division Bench also noted that the
writ petition had been filed challenging the renovation/modification project in
December, 2004 when the project had been duly completed in terms of the H
658 SUPREME COCRT REPORTS [2007] 6 S.C.R.

A sanctioned plan and the appellant had applied for a Completion Certificate.
It was observed that the writ petitions should have been dismissed on the .-
ground of !aches without going into the merits.

19. Apart from the above. the Division Bench also observed that even
on merits the writ petitions were liable to be dismissed since they were based
B on a complete misconception that the respondent No. I had planned to convert
the single screen Savitri Cinema Hall into a four-screen multiplex and that
the same was being done without requisite permissions from the concerned
authorities. The Division Bench disagreed with the views expressed by the
learned Single Judge regarding the role to be played by the Delhi Development
C Authority in the matter. It was observed that the Delhi Development Authority
Act, 1957, classified land into two categories; (i) Development areas; and (ii)
areas other than a developed area. It was noted that for development in a
developed area, the express written permission of the Delhi Development
Authority was essential, whereas Section 12 (3) (ii) of the Act makes it clear
that for development in an area other than the development area, only prior
D written approval or sanction of the local authority regulating the development
of such other area was required. The Division Bench was also of the view
that Clause 8 (2) of the Development Code to the Master Plan for Delhi 200 I
permits commercial areas within a cinema. The parking requirements for the
same had been prescribed and the parking space reserved in the sanctioned
E plan was well over the requirement prescribed not only under the Master Plan
but also under the Delhi Cinematograph Rules, 2002 and the Delhi Building
Bye-laws.

20. Observing that it did not find any illegality in the orders passed
by the Municipal Corporation of Delhi or the other authorities, nor any
F shocking arbitrariness, the Division Bench allowed the appeal and set aside
the judgment of the learned Single Judge.

21. The instant appeal has been filed against the said judgment and
order passed by the Division Bench allowing the writ appeal.

G 22. Appearing for the Association, Mr. U.U. Lalit, learned Senior Counsel,
submitted that the traffic congestion that was likely to occur on account of
renovation of Savitri Cinema Hall was within the knowledge of the Deputy
Commissioner of Police (Traffic), Delhi when such proposal was initially made.
He referred to a letter dated 18th July, 2001 written by the Deputy Commissioner
of Police (Traffic), Delhi to the Deputy Commissioner of Police (Licensing),
/'.-
H
GREATER KAJLASH PART-U WELFARE ASSOCLUION '·DLF L'MVERSAL LTD. [ALT MIAS KABIR, J.J 659

• pointing out the difficulties that would be caused if the Multi-Complex was A
A.
allowed to be erected on the Savitri Cinema plot and it was pointed out that
even with the existing parking facility available in the Savitri Complex, the
situation becomes very grave especially during peak hours and there was
every likelihood thar fatal accidents could occur as the smooth flow of traffic
would also be obstructed on account of such construction. A request was
made that in the event the proposal for renovation of the Savitri Complex was B
to be approved, the traffic unit should also be consulted.

23. Mr. Lalit submitted that the proposal for conversion of the existing
.. Cinema Building into a Mini Cinema-cum-Commercial Building was forwarded
by the Municipal Corporation of Delhi to the Delhi Urban Art Commission
~

(hereinafter referred to as 'DUAC'), as would be apparent from the letter dated
c
24th September, 200 I, written on behalf of DUAC to the Executive Engineer,

- (Buildings) MCD, indicating that the said proposal had been considered by
the Commission in its meeting held on 24th September, 2001 and the same was
approved by the Commission on condition that the same was otherwise as
per Master Plan, Zonal Plan, Building Bye-Laws Fire-fighting Regulations, the D
policy instructions of the Government of India and if I% of the project cost
was set apart for "Works of Art" in the building .
.....
• 24. It was then urged that the Deputy Commissioner of Police (Licensing)
~ had consulted the Deputy Commissioner of Police (Traffic) regarding grant of
"No Objection Certificate" from the Traffic Department to the proposal for E
carrying out alteration/modification of Savitri Cinema. On Ist March, 2002,
the Deputy Commissioner of Police (Traffic) had written to the Deputy
Commissioner of Police (Licensing) indicating that the Traffic Department had
"No Objection" from the traffic point of view to such alteration/modification
subject to certain terms and conditions, namely:- F
"(!)To close gate No.I.
""
""
~- (2) Entry will be only from gate No.2 and exit will be from gate No.
3 and 4. The capacity of Cinema Hall may be reduced to 300 seats
instead of 1000.
G
(3) The use of basement for parking purposes, which is about I0,000
sq. ft. should also be made available."

25. Ultimately, on 25th December, 2002, the Executive Engineer, Municipal
-:~
Corporation of Delhi (Buildmg Department) (HQ), gave a Provisional Clearance
Certificate and informed the office of the Deputy Commissioner of Police H
660 SUPREME .COURT REPORTS [2007) 6 S.C.R.

A (Licensing) about the grant of sanction to the proposal for conversion of the
Savitri Cinema Hall into a Mini Cinema-cum- Commercial Complex. In fact, the
sanction under Section 336 of the Delhi Municipal Corporation Act was
conveyed to the Respondent No.-! by the Delhi Municipal Corporation by its
letter dated 4th December, 2002, which also contained instructions relating to
the commencement of the construction of the building.
B
26. Once the construction was commenced, the members of the
Appellant's Association claim that they came to learn of the proposal for
conversion of the Single Screen Cinema Hall into a four-screen multiplex
together with a commercial complex which would give rise to grave problems
C for the residents of G.K.-11, Alaknanda, Mandakini Enclave and Chittarajan
Park in entering and moving out fro111 the colonies through the T-Junction,
where the Savitri Cinema Hall is situated, on account of the traffic congestion
likely to be caused by visitors to the renovated complex. Accordingly, on
10th September, 2003, the Association addressed a letter to the Commissioner,
Municipal Corporation of Delhi, indicating the difficulties that would result on
D account of a single entry and exit at Savitri Point, to and from the above-
named colonies in the event the proposal for renovation of the Savitri Complex
was allowed to stand.

27. Mr. Lalit submitted that in response to the objections raised on
behalf of the association, the DUAC had invited the representatives of the
E Association to appear before the Commissioner on 12th November, 2003 to
indicate their grievances in the event of conversion of the Savitri Cinema Hall
into a Multiplex.

28. Pursuant thereto, the members of the Association appeared before
F the Commissioner and pointed out that the role of DDA under Section 7 of
the Delhi Development Act, 1957 and the Building Bye-Laws of the MCD had
been overlooked. It was alleged that the relevant provisions of clause 13.1
y
...
and 13.2 of the Building Bye-Laws relating to Parking and Parking Space had
not been properly followed and the entire matter required reconsideration.
The objections taken before the Commissioner were also separately conveyed
G to the Chairman, DUAC, by a letter of even date requesting the Commissioner
to have a re-look at the whole scheme of things, keeping in mind the fact that
the venue of the multiplex complex is the entry point for all the residents living
in the colonies referred to hereinbefore and in particular G.K.-II.
-j-
29. Referring to the Urban Art Commission Act, 1973, Mr. Lalit submitted
H that Section 11 of the Act enumerated the functions of the Commission which
GREATERKAILASH PART-ll WELFARE ASSOCIATION'· DLF UNIVERSAL LTD. [AL TAMAS KABIR. J] 661

..._ included advising the Central Government in the matter of preserving, A
developing and maintaining the aesthetic quality of urban and environmental
design within Delhi and to provide advice and guidance to any local body
in respect of any project or building operations or engineering operations or
any development proposal which affects or is likely to affect the sky-line or
the quality of the surroundings or any public amenity provided therein.
B
30. On 6th December, 2003, the DUAC informed the respondent No.I
that the proposed conversion of the Savitri Cinema Hall into a Mini Cinema-
cum-Commercial Complex had been considered by the Commission in its
-i meeting held on 12th November, 2003, and after hearing all concerned, the
~-
Commission had decided to refer the matter to the Standing Sub-Committee
on Traffic Transportation Proposals for considering all aspects of the proposal. c
It was also decided that the Sub-Committee would consider the matter along
with the Delhi Traffic Police as well as the Municipal Corporation of Delhi.
In addition, the architects were also advised to look into the possibility of
providing more parking space looking at the need of extensive parking for this
kind of complex. D
31. Mr. Lalit contended that while the aforesaid proposal was being
....
considered by the different authorities, the Respondent No.- I changed its
.,.. original plan and decided to convert tke single-screen cinema into a multiplex
having four-screens and commercial show-rooms. The said proposal was also
subsequently replaced by a plan to have two cinema screens, with each single E
cinema having 150 seats, which would operate at staggered timings. However,
on 9th March, 2004, all the different proposals were withdrawn by the
Respondent No.- I and the DUAC was informed that the first proposal of
having one Cinema Hall of 300 seats and some show rooms on the ground
floor which was cleared on 13th August, 2002, and on the basis whereof the
Building Plan had been sanctioned on 4th December 2002, would be proceeded
F
.... ..., with. The Commission wrote back to Respondent No. I on 16th March, 2004,
~ indicating that since the proposal had been revised the same was required to
be routed through the Municipal Corporation of Delhi.

32. Subsequently, in December 2004, four writ petitions were filed on G
behalf of the Association and its office bearers, inter alia, for a writ in the
nature of Certiorari for quashing the sanction of the Building Plans for
conversion of the single screen cinema hall into a multiplex mini cinema-cum-
commercial complex at Savitri Cinema Point, G.K. and for other reliefs.

33. Mr.Lalit submitted that the learned Single Judge had taken into H
662 SUPREME COURT REPORTS (2007] 6 S.C.R.

A consideration the parking standards prescribed by the Delhi Master Plan,
1990 requiring developers to set apart Equivalent Car Space in respect of
the establishments indicated under such parking standard. Mr. Lalit submitted
that the learned Single Judge also noted the fact that a cinema hall-cum-
commercial complex had not been mentioned in the list of establishments
mentioned under the parking standard, although premises used for
B "commercial plotted development" and as a "cinema"' have been separately
mentioned in the said list. Mr. Lalit urged that since the type of construction
to be erected in the Savitri plot was not mentioned in the said list, the learned
Single Judge directed that recourse shou Id be taken to Note I appended to
the Parking Standards, which provided that parking standards in respect
C thereof would be prescribed by the Authority depending on the merits and
requirements of each individual case. Mr. Lalit submitted that besides the
aforesaid provisions relating to parking standards, the learned Single Judge
also had occasion to consider the provisions of the Building Bye Laws with
regard to the same subject. The learned Single Judge took note of Clause
13 of the Building Bye Laws which also deal with parking space and provides
D the specification for the areas to be set apart for parking in the basement, on
the ground floor when the building is on stilts and in the open spaces. In
particular, the learned Judge took note of Clause 26 which deals with assembly
buildings such as cinemas, theatres, etc. Clause 26.2 provides that where
parking spaces are not specifically indicated, the same is to conform to Bye
E Law 13 mentioned hereinabove.
34. Mr. Lalit submitted that apart from the above, the learned Single
Judge also noticed the provisions relating to parking under the Delhi
Cinematograph Rules 2002 framed under the Delhi Cinematograph Act. The
learned Judge noted that the norms prescribed by the different Rules and
F Bye-laws appeared to be in conflict with each other and on a consideration
of the entire situation, the learned Judge was of the view that the Authority
contemplated in Note I to the Parking Standards under the Master Plan,
..,
namely, the Delhi Development Authority, should decide the area to be set
apart for parking in the new complex which was to replace the Savitri Cinema
Hall in the Savitri Plot. The learned Single Judge accordingly disposed of the
G writ petitions with the directions set out hereinbefore. Mr. Lalit pointed out
that the main purport of the directions given by the learned Single Judge was
that in terms of Note I the Delhi Development Authority should not only
indicate the additional parking requirements and the underground coverage j-
for the purpose, but should also consider the question involving the exit of
H vehicles from the cinema complex and the inconvenience likely to be caused
GREATER KAIL ASH PART-II WELFARE ASSOCIATION '· DLF liNIVERSAL LTD [ALT AMAS KABIR, J.J 663

to the local residents as a result thereof.
A
35. Mr. Lalit suggested that the question of constructing an underpass
to avoid the T. Junction could be considered by the Delhi Development
Authority while considering the questions relating to traffic congestion referred
to above.
B
36. Mr. Lalit lastly contended that although the High Court had held
that the writ petitioners were guilty of !aches on account of the fact that the
sanction to the renovation plan had been granted in the year 2002, whereas
the writ petitions had been filed in the year 2004, in actual effect, the writ
petitioners were initially unaware of the nature of the building which was to
replace the existing Savitri Cinema Hall and once they came to learn of the C
actual plan, they raised objections to the concerned authorities from
September, 2003, but in the absence of any positive response, they were
compelled to file writ petitions in order to prevent a disaster in the making
while it could still be prevented. Mr. Lalit urged that the DUCA, which was
required to consider the effect of building operations on any public amenity D
provided therein could be directed to give the writ petitioners a fresh hearing
so that the problem which was looming large could be addressed.

37. Appearing for the respondent No.I, Mr. Arun Jaitley, learned senior
counsel, submitted that the apprehension of the writ petitioners on the question
of traffic congestion on account of the conversion of the Savitri Cinema Hall E
into a Mini-Cinema Hall-cum-Commercial Complex was completely unfounded

- as the parking space that had been set apart for vehicles visiting the complex
was in excess of the parking standard contemplated under the Delhi Master
Plan, 1990. He indicated that while the parking standards under the Master
Plan required 93 ECS to be kept apart for the complex, in effect 98 ECS had
been set apart for the said purpose, which included I 0,000 Sq.Ft. in the F
basement. Mr. Jaitley urged that even under the parking norms under the
Delhi Cinematograph Act and the Rules and the Building Bye Laws, a similar
amount of space was required to be kept apart for parking. The plan prepared
by the respondent No. I for sanction was in complete conformity with the
Building Bye Laws and the other Rules and Regulations and the writ petitioners G
could have no cause for complaint in respect thereof. Mr. Jaitley urged that
the Delhi Development Authority, which had been directed by the learned
Single Judge to consider the question of calculating and specifying the space
to be kept apart for parking in the renovated complex was not empowered to
do so and it was only vested with authority under Section 12 of the Delhi
H
664 SUPREME COURT REPORTS (2007) 6 S.C.R.

A Development Act, 1957 to oversee the development of lands. He also
pointed out that where the area to be developed was an area other then a
developed area, such development would have to be effected upon obtaining
sanction from the local authority concerned or any officer or authority thereof
empowered or authorized in that behalf.

B 38. Mr. Jaitley also submitted that since the respondent No. I had
obtained sanction for renovation and/or conversion of the existing Savitri
Cinema Hall into a Single Cine Complex cum Commercial Complex, which
was in conformity with the Building Bye Laws and the Parking Standards
prescribed under the Delhi Master Plan, it was not open to the writ petitioners
C to raise any objection to the proposed renovation merely on the apprehension
of likelihood of traffic congestion.

39. Mr. Jaitley submitted that the Delhi Urban Art Commission had been
constituted under the Delhi Urban Art Commission Act, 1973, not for the
purpose of considering matters as are in issue in the writ petitions filed by
D the appellants herein.
40. Mr. Jaitley submitted that the Licensing Authority, namely the Deputy ..-
Commissioner of Police (Licensing) had consulted the Deputy Commissioner
of Police (Traffic) before granting "No Objection Certificate" to the plan of ~
renovation of the Savitri Cinema Complex.
E
41. Mr. Jaitley submitted that although an attempt had been made by
the Writ Petitioners to involve the DUAC in the process of grant of sanction,
neither the Delhi Urban Art Commission Act, 1973 nor the Building Rules and
Regulations under the various enactments contemplated such involvement of
the DUAC in such matters except to the extent of maintaining and preserving
-
F the aesthetic quality of such building plans.

42. Mr. Jaitley submitted that there was no provision in the 1973 Act
which enabled the DUAC to entertain objections from citizens in respect of
Building Plans submitted by individuals for construction on a particular plot.
G So long as the said Building Plans were in conformity with the Building Bye-
Laws and the norms laid down in the Master Plan and so long as the plan
did not offend the aesthetic quality of urban and environment design, the
DUAC had no role to play in the grant of sanction to the building plan.

43. Mr. Jaitley submitted that, in fact, about 1 acre of parking space had
H been provided for in the sanctioned plan, both in the open area and also in
GREATERKAlLASHPART·ll WELFAREASSOCIATIONv. DLF UNIVERSAL LTD. [ALTAMAS KABIR, I.] 665

the basement, which was required to be set apart under the parking standards A
laid down by the Delhi Master Plan, 1990. It was also urged that it would
be against all equitable considerations to disturb or alter the sanction as
granted since the construction has already been completed as per the sanctioned
plan and a 'Completion Certificate' had been issued by the Municipal
Corporation of Delhi to the Respondent No.-1 on 6th March, 2006.
B
44. Mr. Jaitley urged that the directions given by the learned Single
Judge purportedly in keeping with Note-I of the Parking Standards as indicated
in the Delhi Master Plan, 1990, amounted to legislation by the Court since
provisions had already been made under the said Parking Standards for the
ECS to be set apart for a Cinema Complex or even for commercial plotted
development. According to Mr. Jaitley, since the Savitri Complex had been C
earmarked as a Cinema Hall, the entry relating to "Cinema" under the Parking
Standards was sufficient to meet the parking space required to be set apart
in the renovated Single Screen Cineplex-cum- Commercial Centre. He added
that although it had been suggested that under the 2021 Delhi Master Plan,
the ECS required to be set apart was 3, the same could have no application D
to the complex which has been erected by the Respondent No. I in keeping
with the plan sanctioned by the concerned authorities.

45. Mr. Jaitley urged that the writ petitions filed by the appellants
should not have been entertained on account of the delay and !aches of the
writ petitioners. Although, sanction had been granted to Respondent No.- E
I as far as back as on 4th December, 2002, and construction had been
commenced soon thereafter, the first time an objection was taken by the
appellants was on 10th September, 2003 and the writ petition was, thereafter,
filed in December, 2004, when the construction had already been completed.
Mr. Jaitley submitted that it would be inequitable at this stage to consider the F
contentions now being raised by the appellants.

46. Mr. Jaitley ended his submissions by referring to the affidavit affirmed
on behalf of the DUAC by its Secretary which supported the case of the
Respondent No.-! and wherein it had been stated that as far as the DUAC
was concerned, the grounds indicated by the writ petitioners in the special G
leave petition were misconceived and the special leave petition deserved to
be dismissed.

47. Very little was added on behalf of the State and the DUAC to the
submissions made on behalf of the appellant and the respondent No.I. On
behalf of the State, the provisions of Rule 3 of the Delhi Cinematography H
666 SUPREME COURT REPORTS [2007] 6 S.C.R.

A Rules, 1981, were referred to for the purpose of reiterating that any person
desirous of erecting a cinema house or converting an existing building into
a cinema house has to apply to the Licensing Authority for a Provisional
Clearance Certificate in respect of the building and the site plans. If the
plans were found to be in conformity with the Rules, the Licensing Authority
was under an obligation in consultation with the Executive Engineer, P.W.D.
B to grant a Provisional Clearance Certificate. It has also been stipulated that
the grant of such Provisional Clearance Certificate would not ipso facto entitle
the applicant for grant of a regular cinema licence on completion of the
building or give any immunity from the application of any new provisions
to the Rules which may be incorporated after the issue of such Certificate and
C before the grant of a licence under the Act.
48. What transpires from the submissions made on behalf of the
appellant-Association is its apprehension of serious traffic problems if the
respondent No. I is permitted to use the Savitri Cinema Complex for the
purposes mentioned in the sanctioned plan without suitable modifications.
D On the one hand, the owners of the Savitri Plot have obtained requisite
sanction under the relevant Rules and Regulations and Building Bye Laws to
convert the existing single-screen cinema hall into a mini cinema hall -cum
commercial complex. There is no denying the fact that the respondent No.I
has complied with all the requirements of the law for the aforesaid purpose.
On the other hand, there is a real apprehension on the part of the appellants
E that the approach to the above-mentioned colonies will be completely choked
on account of the traffic congestion that is likely to be caused as a result
of the number of visitors who are likely to visit the renovated complex which
will consist of not only a cinema hall, but a six-storeyed building dedicated
to commercial activities. The respondent No. I has complied with the parking
p standards prescribed under the Building Bye-Laws, the Delhi Master Plan and
the Cinematograph Rules and as pointed out by Mr. Arun Jaitley, even more
space than what was required under the Rules have been set apart for the
purpose of parking so that congestion at the T. junction is avoided,
notwithstanding the number of visitors to the renovated complex. However,
the problem that is envisaged by the residents of the aforesaid colonies is
G not only the parking- relatedyroblems, but the problems resulting on account
of the increased flow of vehicles at the T. junction. It is such apprehension
that has led to the filing of the writ petitions by the residents of the aforesaid
colonies. j.-

49. It has been submitted that the writ petitioners/appellants herein,
H
GREATER KAILASH PART·U WELFARE ASSOCIATION"· DLF UNIVERSAL LTD. [ALT AMAS KABIR, J] 667

would be satisfied if they are given an opportunity of hearing by DUAC
so that they could explain the ground realities of the fall-out of the sanction A
granted for conversion of the Savitri Cinema Hall into a Mini Cinema Hall
cum - Commercial Complex.

50. From the materials on record there is no ambiguity that sanction
was granted to the respondent No. I to make the above-mentioned conversion B
strictly in accordance with the Rules and Building Bye Laws, even to the
point of consultation by the Deputy Commissioner of Police (Licensing) with
the Deputy Commissioner of Police (Traffic) on the specific problem
apprehended by the appellants. It is only after clearance was obtained from
the Deputy Commissioner of Police (Traffic) that a No-Objection Certificate
was issued by the Deputy Commissioner of Police (Licensing) and sanction C
was granted by the Municipal Corporation of Delhi. Although, it has been
argued on behalf of the appellants that the Deputy Commissioner of Police
(Traffic) had mechanically given his consent to the plan, we have to respect
his decision and the decision of the Municipal Corporation who are the
experts in such matters. D
51. Apart from the above, the DUAC appears to have considered the
objection made on behalf of the appellants in its meeting held on 12th
November, 2003 and after hearing all concerned, the Commission had decided
to refer the matter to the Standing Sub-Committee on Traffic, Transportation
Proposals for the purpose of considering all aspects of the proposal with the E
broad object of providing more parking space in view of the need of

,
extensive parking for this kind of a complex. Moreover, the DUAC had in
its affidavit filed in the proceedings stated that as far as DUAC is concerned,
the grounds indicated by the writ petitioners in the Special Leave Petition are
misconceived and the Special Leave Petition deserved to be dismissed.
F
52. The owner of a plot of land is entitled to use and utilize the same
for any lawful purpose and to erect any construction thereupon in accordance
with the existing rules. So long as such owner does not contravene any of
the provisions which restrict his use of the plot in any manner, he cannot
be prevented from utilizing the same in accordance with law. In this case, G
the respondent No. I which is the owner of the plot in question cannot be
denied the use of the plot on account of the apprehension of the appellants,
particularly when he has already raised the structure in accordance with the
sanctioned plan. It is not the case of the appellants that the respondent No. I
has in any manner deviated from the building plan as sanctioned. The
H
668 SUPREME COURT REPORTS (2007] 6 S.C.R.

A grievance of the appellants is confined to the possible problem that may
arise from the use of the building as a Cinema Hall cum- Commercial
Complex. Once the authorities who are competent to do so have indicated
that the apprehension was unfounded, it is not for the Writ Court to interfere
with such decision.

B 53. Although, the parking standards under the Delhi Master Plan, 1990,
do not specify the parking space to be set apart for a Cinema Hall cum-
Commercial Complex, the Municipal authorities, who are the sanctioning
authorities of any building plan, have considered the parking space set apart
for the renovated complex to be sufficient to meet the requirements so as not
to cause any traffic congestion as apprehended. In fact, the Delhi Development
C Authority to whom a direction has been given by the learned Single Judge
in terms of Note I of the Parking Standards prescribed under the Delhi Master
Plan has little or no role to play in the sanctioning of the building plan. Such
a direction, in our view, is misconceived and cannot be sustained.

D 54. In our view, the Division Bench was justified in observing that the
learned Single Judge had in effect sat in appeal over the decision of the
Executive authorities which he was not entitled to do in law.

55. We, therefore, see no reason to interfere with the orders passed by
the Division Bench of the Delhi High Court allowing the Writ Appeal and 'f"
E setting aside the judgment of the learned Single Judge. If, however, in future
the necessity so arises, the concerned authorities will be at liberty to take
appropriate steps to contain any problem that may arise, in accordance with
Jaw. The instant appeal fails and is dismissed.

56. There will be no order as to costs.

A.KT. Appeal dismissed.

f-