Supreme Court of India
SHAKUR BASTI SHAMSHAN BHUMI SUDHAR SAMITI (REGD.)versusTHE LT. GOVERNOR, NATIONAL CAPITAL TERRITORY OF DELHI AND OTHERS
- Citation
- 2007 INSC 1258
- Decided
- 11 December 2007
- Disposal
- Dismissed
- Bench
- S B SINHA
Holding
The Lieutenant Governor's order is an executive order, illegal for contravening the statutory development plan and prior judicial orders, and the appellant has no legal right over the land; the appeal is dismissed.
Summary
The Shakur Basti Shamshan BhumI Sudhar Samiti, a society managing a cremation ground, challenged a series of orders that allowed the land to be used for residential purposes and later directed the Lieutenant Governor to allot the land to the Municipal Corporation of Delhi (MCD) for continued cremation use. The High Court had repeatedly ordered the closure of the cremation ground in compliance with the Delhi Development Authority's (DDA) development plan, which earmarked the land for a shopping centre, school and housing. The Lieutenant Governor issued executive orders to allot the land to MCD and later attempted to reverse his earlier order, prompting the society to seek judicial review. The Supreme Court held that the Lieutenant Governor's orders were executive, not judicial, and were illegal as they contravened the statutory development plan and prior judicial orders; consequently, the society had no legal right over the land. The Court dismissed the appeal, affirming the High Court's orders to cease cremations on the site.
Issues considered
- The nature of the Lieutenant Governor's order: whether it is a judicial/quasi‑judicial order subject to review under Article 226.
- Whether the order allocating the land to MCD for cremation purposes is legal in view of the DDA development plan and prior High Court orders.
- Whether the appellant society has any legal right or title over the land.
- Whether the Lieutenant Governor can review his own order and whether the order can be quashed.
Legislation cited
- Constitution of Indias. Article 226
Subjects
land acquisitioncremation groundadministrative orderreview of executive actionLieutenant Governordevelopment planArticle 226statutory authoritylegal rightwrit petition
Judgment
SHAKUR BAST! SHAMSHAN BHUMI SUDHAR SAMIT! A
(REGD.)
v.
THE LT. GOVERNOR, NATIONAL CAPITAL TERRITORY OF
DELHI AND OTHERS
B
DECEMBER 11, 2007
~I
I
[S.B. SINHA AND HARJIT SINGH BEDI, JJ.]
Urban Development:
I C
Acquisition of land being used as cremation ground - State
Authority allotting the land to Housing Societies after declaring it
as residential area - Cremaiion of dead bodies on the land
continued - Challenged by Housing Societies - High Court directing
the authorities to stop cremation on the land - Issuance of Notice D
by Municipal Corporation closing the cremation ground and
commissioning a new cremation ground in nearby area -Appellant,
a Cremation Ground Welfare Society, filing a representation before
Lieutenant Governor for allotment of the land in its favour for
proper management - L. G directing MCD to take over the land E
and Delhi Development Authority to make formal allotment of
the Land to MCD- Challenged by a resident- High Court directing
the authority to ensure that the Land not to be used as cremation
ground -Appellant filing a petition before High Court for direction
to L. G for fresh order - High Court directing L. G to pass fresh F
order - Admitting that the facts regarding allotment of the Land
to Housing Society not brought to his knowledge earlier, L. G
directed the authorities to re site cremation ground - Writ petition
filed thereagainst by appellant dismissed by High Court - Writ
appealfiledalso dismissed by High Court- On appeal, Held, Order G
for closure of the cremation ground was passed by the authority
j - Though appellant society not impleaded as a party but it cannot
be believed that it was not aware of such developments - Order
passed by L. G directing the authorities to. take over the land in
145 H
146 SUPREME COURT REPORfS [2007] 13 (Addi.) S.C.R.
A question for the purpose of cremation ground was in ignorance ol
iudicial orders, thus, could be reviewed - Jn terms olorder of LG
no legal right conferred on the appellant society -Also L. G as a
Statutory authority could not ignore the development plan -- The
land in question earmarked by the Authority for development in
B terms of Statute -- Order passed by High Court directing closure
of the cremation ground though challenged by appellant by filing
LPA but the same was withdrawn, iherefore, the order attained
finality - Administrative Order - Review.
c Constitution of India, 1950; Article 226:
Quashing of order passed by executive - Jurisdiction of a
writ court - Held: A Writ Court in exercise of its jurisdiction
under Article 226 of the Constitution need not quash the order if
it gives rise to another illegal order or may quash both the orders
D - Administrative order - Quashing of
Appellant, a registered society was managing the affairs of
a cremation ground on the disputed land. Land acquisition
proceedings were initiated by the Delhi Development Authority
E for acquisition of the said land and an award was also made.
Despite acquisition of the land, unauthorized cremation of dead
bodies continued on it. Later, a Notification was issued by the
Delhi Development Authority declaring the said area to be
residential area and allotted the land to Group Housing Societies.
F They filed writ petitions before the Delhi High Court praying for
discontinuance of the site as cremation ground. The High Court
directed respondents-authorities to stop cremation on the land
in question. The order of the High Court was challenged by the
appellant-Cremation Ground Welfare Society by filing Special
Ci Leave Petitions before the Supreme Court. The petition was
dismissed. Later, the Municipal Corporation of Delhi issued a
Public Notice informing about closure of the cremation ground
and commissioning of the new cremation ground in nearby area.
A writ petition was filed by the respondents raising objection
I-I
~,
~
SHAKUR BASTl SHAMSHAN BHUMI S.S. (REGD.) v. 147
THE LT. GOVERNOR, N.C.T OF DELHI & ORS.
f against the opening of the cremation ground at the new site and A
a suit was filed by another respondent praying for retaining the
cremation ground.
In the meantime, a representation was made by the
appellant-Society to the Lieutenant. Governor of Delhi for B
allotment of the land in question in its favour. The representation
__.;
was allowed by the Lt. Governor directing MCD to officially
take over the cremation ground for which DDA would have to
make a formal allotment to the MCD and to enter into an MoU
with the appellant for proper management of the cremation c
ground. Delhi Development Authority re-allotted the land to
MCD for the purpose of cremation ground. A resident of the
adjoining area filed a writ petition thereagainst. High Court
directed DDA to ensure that the land in question is not to be
used as a cremation ground. An LPA filed thereagainst by the D
appellant-Society was dismissed by the High Court as withdrawn.
A separate writ petition was filed by the appellant on the ground
that Lt. Governor has passed another order allotting the site in
question to the M.C.D. without consulting it which was contrary
to the earlier order. The petition was disposed of by the High E
Court directing the Lt. Governor to pass fresh order after hearing
both the parties. The appellant filed a detailed representation
before the Governor, the Governor after hearing both the parties
issued instructions to MCD and DDA to re site the cremation
ground and to put to use the land so vacated as per the F
development plan. A writ petition filed thereagainst by the
appellant was dismissed by High Court. The writ appeal was
dismissed by a Division Bench of the High Court. Hence, the
present appeal.
G
Dismissing the appeal, the Court
J.
HELD: 1.1. In the first round of litigation following the
award made in the land acquisition proceedings, not only various
restraint orders but also an order for closure of the cremation
H
r•
148 SUPREME COURT REPORTS [2007] 13 (Addl.) S.C.R.
A ground was passed. Appellant might not have been impleaded
as a party therein but it is difficult to conceive that it was not
aware thereof. [Para 27) [161-A-B]
1.2. The order of the Lt. Governor directing allotment of
B land was neither a judicial nor a quasi-judicial order. It was an
executive order. If an executive order. had been passed in
ignorance of various judicial orders passed by the High Court,
the same could be reviewed. In view of the fact that the
development plans have the force of a statute and the purpose
for which the area was earmarked by thedevelopment authority
C therein there exists no reason as to why the mistake committed
by the Lieutenant Governor could not be rectified. [Para 30)
[161-F-G)
1.3. The purported letter proposing allotment of land by
D the Lt. Governor did not confer any legal right on the appellant.
Only a desire was expressed by the authority that the Municipal
Corporation of Delhi should officially take over the cremation
ground for which DDA was to make a formal allotment to it
whereafter only a Memorandum of Understanding could be
E entered into by and between the appellant and the Commissioner,
MCD. Action pursuant to or in furtherance of the said order
was merely undertaken, but no final order was passed conferring
any legal right upon the appellant. Apart from furnishing a copy
of the order of the Lt. Governor and a copy of the letter issued
by the Competent Authority ofDDAto the Commissioner, MCD,
F no document was executed in its favour. For possessing a legal
title, a deed was required to be executed by the MCD in favour
of the appellant. Even such an allotment was carried into effect,
the same would have been illegal . being contrary to the
development plan. Without a valid order for change in user, a
G site meant for a shopping complex, a school and user thereof for
residential purpose, it could not have been directed to be used
as a cremation ground. [Para 31) [161-G-H; 162-A-B-C-D]
The Bihar Eastern Gangetic Fishermen Cooperative Society
H Ltd Vs. Sipahi Singh and Others (1977) 4 SCC 145 - relied on.
I
~
SHAKUR BASii SHAMSHAN BHUMI S.S. (REGD.) v. 149
THE LT. GOVERNOR, N.C.T OF DELHI & ORS.
2.1. Writ petitions were also filed by a Housing Society A
and local residents before the High Court whereupon directions
to close the cremation ground were issued by the High Court.
It may be that the matter was taken to the Appellate Court but
the LPA was also withdrawn. The said order attained finality. It
is in such .a situation when a writ petition was filed by the B
appellant in the High Court. The High Court by its order dated
23.10.2002 only provided for a relief of grant of an opportunity
of being heard before the Lt. Governor in favour of the appellant.
[Paras 33, 34] [162-E-F-G]
2.2. Appellant, raised a question in regard to competence C
of L.G to review his own order. The said contention proceed ea
on the premise that an order of allotment was required to be
reviewed. But, the principle governing review of a judicial or
statutory order has no application in the matter of administrative
~~. D
[Para 35] [162-G-H; 163-A]
2.3. The Lt. Governor acts as a statutory authority under
the DDAAct. It is not sure as to whether he has any role to play
in regard to the affairs of the Municipal Corporation of Delhi. E
If not, the said order was per se illegal. [Para 36] [163-B-C]
3.1. It appears from the order of Lt. Governor that group
housing societies were also heard by the Lt. Governor. They
evidently claimed their own rights thereupon. Even then, they
were not impleaded as parties in the writ application. In their F
absence, the writ petition was not maintainable. [Para 39]
[163-H; 164-A]
3.2. As a statutory authority, the Lt. Governor could not
ignore the development plan. As the earlier order passed by
a statutory authority was a nullity, an order recalling the G
same shaU not be allowed to operate only because certain
J formalities (assuming there were some) in passing the same
have not been complied with. [Para 40] [164-B]
3.3. It is now well-known that a writ court in exercise of its H
150 SUPRE:V!ECOURTRFPORTS [2007'. r.1r.\ddl.)S.C.i\
A jurisdiction under Article 226 of the Constitution of India nn·d
not quash an order if it gives rise to another illegal order or may ""
quash both the orders. In this view of the matter no case ha~
been made out for interference with the impugned judgment.
[Paras 40-41) [164-B-C]
B
CIVIL APPELLATE JURISDICTION : Civil Appeal No. 5793
of 2007.
From the Judgment and final Order dated 7.7.2004 of the High
Court of Delhi at New Delhi in W.A. No. 576/2004.
c
U.U. Lalit, P.S. Narasimha, Anupam Lal Das and Amit Shorma
for the Appellant.
Sanjiv Sen, Praveen Swamp. SubhashBansal and Vishnu B.
Saharya (for Mis. Saharya & Co.), for the Respondents.
D
The Judgment of the Court was delivered by
S.B. SINHA, J. 1. The present controversy relates to a
cremation ground known as 'Shakur Basti Shamshan Bhumi'. lt is
located in a village known as Shakur Basti in the town of Delhi.
E
2. Appellant herein is a society registered under the Societies
Registration Act, 1960. It is said to be managing the affairs of the
cremation ground being in charge and possession thereof. The village
in question as also the adjoining areas viz. Rani Bagh, Rishi Nagar,
F Mohindra Park, Sant Nagar, Raja Park, Sri Nagar etc. are said to be
inhabited by the displaced persons from Pakistan. This site in question
was being used as cremation ground by the residents of the village as
also the adjoining areas.
3. A land acquisition proceedings was initiated for acquisition of
G the said land on or about 26th December, 1964. An award was al~o
published. The possession of the vacant land was admittedly taken
Despite acquisition of the said land unauthorized cremation o!' Lkad
bodies continued.
H 4. It is not in dispute that pursuant to or in furtherance of the [;;p1d
·-4
SHAKUR BASTl Sl-IAMSHA~ BHUMI S.S. (REGD.) v. 151
LT. GR., N.C.T OF DELHI & ORS. [SINHA, J.]
acquisition proceedings a Notification was issued by the Delhi A
Development Authority declaring the said area to be the residential
area. Some Group Housing Societies developed residential units thereat.
A few cooperative group housing societies filed writ petitions before
the Delhi High Court impleading inter alia the Delhi Development
Authority and the Municipal Corporation of Delhi as parties-respondents B
therein praying inter alia for discontinuance of the said site as cremation
ground. By judgment and order of gth May, 1996 a purported
observation was made that cremation of dead bodies was being made
unauthorisedly on the land in question the relevant part whereof reads:-
c
"Learned counsel for respondent No.1 submits that it appears
that on the land which has been placed at the disposal ofDDA,
cremation of bodies has been unauthorisedly started sometime in
1991. Even counsel for respondent no.3 has not disputed that
the land in question on which bodies are being cremated is an D
unauthorized cremation grmmd. We direct respondents to ensue
that till further orders the bodies are not cremated upon the land
in question. The SHO of Police Station, Saraswati Vihar is also
directed to ensure compliance of the order."
5. The said order of the High Court was challenged by way of E
Special Leave Petitions before this Court and this Court on or about
l 71h June, 1996 passed the following order:-
"Issue notice in the special leave petitions.
Issue notice in the stay applications also. F
In the meanwhile the direction of the High Court dated 8th May,
1996 restraining cremation of the dead bodies at the site in
question is stayed. It is, however, directed that no construction,
whether temporary or permanent, shall be raised at the site by G
any party till further orders by this Court."
) 6. By an order dated 13 111 January, 1997 the Special Leave
Petitions were dismissed observing:-
"Learned counsel for the contesting respondent submits that the rt
152 SUPREME COURT REPORTS [2007] 13 (Addi.) S.C.R.
A writ petition which was pending in the High Court has since been
disposed of and since these special leave petitions were directed
against the interim orders made in that writ petition, these special
leave petitions have been rendered infructuous. Mr. Jaitley
appearing for the petitioners does not dispute this position. The
B special leave petitions are dismissed as infructuous."
7. On or about June, 1998 the Municipal Corporation of Delhi
issued a Public Notice that the cremation ground near Harsh Vihar had
been closed with immediate effect and the new cremation ground at
C Beri Wala Bagh was commissioned for Public use henceforth.
8. In or about June 1998 'Aggarwal Samaj', Shakur Pur filed
a writ petition raising objection against the opening of the abovesaid
cremation ground at Beri Wala.
D 9. Several other proceedings were also initiated wherein the
appellant herein was not impleaded as the party. An attempt made by
the appellant to intervene in some of the said proceedings did not
succeed.
l 0. A suit was filed by one Balvant Rai. It related to Khasra
E No.18112. A prayer was made therein that the said cremation ground
at Shakur Basti be retained.
11. A writ petition was also filed by Harsh Vihar Cooperative
House Building Society and others inter alia on the premise that the
F decision taken for regularization of cremation ground at that place
despite allotment of a separate site for establishment of an alternative
cremation ground was invalid in law.
12. A representation was made by the appellant to the Lieutenant.
Governor of Delhi for allotment of the land in question in its favour.
G The said representation was said to have been allowed in terms of the
order of the. Governor dated 7th September, 2001, which reads :-
"Enclosed is a representation made before the Lt. Governor by
the Shakur Basi Shamshan Bhumi Sudhar San1iti regarding
H retention of Shakur Basi Shamshan Bhumi at its existing site. l11e
SHAKURBASTISHAMSHANBHUMI S.S. (REGD.)v. 153
LT. GR., N.C.T OF DELHI & ORS. [SINHA, J.]
details are reflected, in the afore-mentioned representation. Lt. A
t Governor has desired that MCD should officially take over the
cremation ground for which DDA would have to make a formal
allotment to the MCD. Thereafter as discussed with
Commissioner, MCD, Lt. Governor has desired that an MoU
could be entered with the Shakur Basti Shamshan Bhumdi Sudhar B
Samiti for proper management. Action on these lines may kindly
be taken."
13. Delhi Development Authority, pursuant to or in furtherance
of the said order of the Lieutenant Governor addressed a letter to the c
Commissioner of Municipal Corporation of Delhi on 26th November,
2001 relevant part of which reads"-
"With reference to your letter dated xxxxxxx on the subject
noted above, I am directed to inform you that under the provisions
ofDDA (Developed Nazul Land) Rules, 1981 it is proposed to D
allot you on perpetual lease hold basis a plot of land measuring
1700 sq. mtr. For the purpose of Cremation Ground on the
usual terms/conditions as given in the approved format of
perpetual lease and the following conditions amongst others."
E
14. The Lieutenant Governor of Delhi reviewed his order on
23rd April, 2002 which was communicated to the appellant on 201h
June, 2002.
15. However, after the aforesaid order of allotment was made,
one Smt. Jyotsna Kashap a resident of an adjoining Kailash Colony F
approached the High Court by filing a writ petition which was numbered
as CWP No.3612 of 2001. By an order dated 22nd July, 2002 a
learned Single Judge of the High Court disposed of the said writ
petition, the relevant part whereofreads as under:-
G
"It may be noted that certain representations were made to the
Lt. Governor for continuing the Shakur Basti Land to be used
as a cremation ground. It is now stated in the Court that the said
representation has been rejected by the Lt. Governor and a
copy of the communication dated 20.6.2002 is placed on record. H
154 SUPREME COURT REPORrS [2007] 13 (Add!.) S.C.R.
A In view of the aforesaid position all the public authorities who
are respondents have agreed that the use of the land as a
cremation ground has to be stopped.
In view of the aforesaid it is directed that respondent No.3
shall ensure that the land in question is not used as a cremation
B
ground and remove unauthroised permanent or temporary
structures constructed thereon. Respondent No.2 shall render
police assistance as and when requisitioned by respondent No.3
to ensure the compliance of the order. The needful be done
c within a period of two months from today and compliance report
be filed in the Court. The writ petition stands disposed of in the
aforesaid terms."
Appellant, however, was not a party therein.
D 16. By an order dated 22nd July, 2002, a learned Single Judge
of the High Court having regard to the orders passed by the Delhi
High Court, some of which have been noticed by us hereinbefore,
directed:-
"In view of the decision now finally taken by the Lt. Governor
E that land at Shakur Basti is not to be used as a cremation ground
and in view of the directions issued by this Court in CW 3612/
2001 no further orders are called for in this writ petition and the
same stands disposed of."
F 16. An LPA was filed by the appellant herein against the said
order dated July 22, 2002 in CW No.591 of2002 in which a Division
Bench of the High Court passed the following order on 27th August,
2002 :-
"Counsel for the appellant says that the grievance of the appellant
G is that he had filed an application for impleadment in Civil Writ
Petition N0.591/2002 but without taking any decision on his
application, the writ has been disposed of, which has adversely
affected the interest of the appellant. It is the appellant who had
been agitating about this land since 1991. He would like to file
H
(
f
SHAKUR BAS TI SHAMS HAN BHUMI S.S. (REGD.) v. 155
LT. GR .. N.C.T OF DELHI & ORS. [SINHA, J.]
review application or may file substantive writ petition, therefore, A
,. prays that while disposing of this LPA status quo order till Monday
2"d September. 2002 may be ordered to be maintained. Jn view
of the statement of the counsel for the appellant the appeal is
dismissed as withdrawn. However, till 2"c1 September, 2002 order
of status quo is ordered to be maintained." B
17. We may also incidentally notice, although nothing much turns
out of it, that a resolution was purported to have been passed on 4th
October, 2002 by the Councillors to the effect that the Municipal
Corporation of Delhi would carry out improvement and development C
of the Cremation Ground at its existing site only.
18. A separate writ petition was filed by the appellant wherein
the aforesaid Smt. Jyotsna Kashyap and others. some of the cooperative
group housing societies were impleaded as parties. It was marked as
CWPNo. 5567 of2002. A learned Single Judge disposed of the said D
writ petition by an order dated 23rd October. 2002 which reads :-
" The grievance made in the present writ petition by the
petitioner is that the order dated 20.6.2002 passed by the Lt.
Governor allotting the site in question to the M.C.D. which was E
contrary to the earlier order dated 7.9.2001 directing the
memorandum of understanding to be executed by the petitioner
had been passed without any intimation to the petitioner and
without the petitioner being heard.
Learned senior counsel for respondent No.3 D.D.A. states F
that the order was in fact passed on 23.4.2002 though D.D.A.
communicated to the M.C.D. on 20.6.2002.
In view of the fact that the order dated 23.4.2002
communicated on 20.6.2002 to the M.C.D. had admittedly been G
passed without hearing the petitioner which seeks to modify the
earlier order dated 7.9.2001, it is agreed by the respondents
-' that the petitioner will be given a personal hearing and a fresh
order shall be passed thereafter. The petitioner shall appear before
the Lt. Governor on 8.11.2002 at 3.00 PM. It will be open to H
\
156 SUPREME COURT REPORTS [2007] 13 (Addi.) S.C.R.
A the petitioners 5 to 10 can also appear before the Lt. Governor.
All the parties will be given a personal hearing on the said date
or any subsequent adjourned date and a reasoned order shall be
passed within a period of two months thereafter. In view thereof
the impugned order dated 23.4.2002 and the letter dated
B 20.6.2002 shall not be given effect to. Needless to say that if
any of the parties are aggrieved by the order passed by the Lt.
Governor it will be open to them to impugn the same in
:..
accordance with law."
c 19. On the aforementioned basis a detailed representation was
filed by the appellant before the Lieutenant Governor of Delhi wherein
inter alia the following prayers were made:-
" It is therefore prayed that Your goodself may be pleased to:
D a. first consider and decide the preliminary issues/objections
raised by the applicant in the present application;
b. uphold that the order dated 7.9.2001 passed by your
goodself and further hold that no interference with the said
order is called for in view of the fact that no power of
E review is conferred on Your goodself;
c. uphold that the order dated 7.9.2001 passed by Your
goodself and further hold that no interference with the said
order is called for in the facts and circumstances of the
F present case;
d. make available to the applicant a copy of the purported
order of cancellation/revocation of the order dated
7.9.2001;
G e. grant opportunity to the applicant to bring additional facts
and evidences on reco.-d to justify that the order dated
7. 9.2001 passed by Your goodself is correct and valid in
;..
the facts and circumstances of the present case and calls
for no interference.
H
SHAKURBASTI SHAMSHANBHUMI S.S. (REGD.) v. 157
LT. GR., N.C.T OF DELHI & ORS. [SINHA, J.]
f Pass such other orders or directions as deemed fit in the A
facts and circumstances of the present case."
20. Allegedly prayer (d) was made therein in the said representation
as the purported order of cancellation/revocation of the order dated
7th September, 2001 by order dated 23rd April, 2002 had not been B
received by the appellant.
.;. 21. The Lieutenant Gove;rnor heard all the concerned parties. In
terms of an ~rder dated 27th June, 2003 it was opined :-
" I have considered the contentions ofShakur Basti Shamshan C
Sudhar Samiti as well as the representation of the various Group
Housing Societies.
The Shakur Basti Shamshan Sudhar Samiti has contended
that the cremation ground has been in existence since the year
1955, in suj)port of which they have submitted documents showing D
that cremations have been held at that Site since then. The
representatives of the Group Housing Societies have stated, on
the other hand, that the land where the cremation ground is
presently situated had been acquired by the Delhi Administration
vide award No.1755 dated 26.12.1964 and that its physical E
possession was taken on 6.4.1965. The land was transferred to
D.D.A. for development of Pitampura Residential Complex on
3.1.1968. As per the Zonal Development Plan ofD.D.A the
land use of the site in question is for setting up of a local shopping
centre, a primary school and residential group housing. F
I have also gone through the judgments of the court of Sub-
Judge Ist Class, Delhi, ADJ, the High Court and the Supreme
Court on this matter. According to judgments the use of the land
.should conform to the zonal development plan and that the G
cremation ground should not be allowed to function from there.
The High Court has further ordered that M.C.D. construct a
cremation ground at Beriwala Bagh, close to the Shakur Basti
site.
H
158 SUPREME COURT !U:PORTS [2007] J 3 (Addi.) S.C.R.
A The aforementioned facts were not in my knowledge when
the representatives of the Shakur Basti Shamshan t3humi first
met me with their petition to allow the Shamshan Bhumi to fi.mction
from the existing site. On the basis of the earlier representation
and the facts then submitted, D.D.A. had been advised to make
B a formal allotment of the cremation ground to the M.C.D., after
which M.C.D. was to conclude a MoU with the Samiti for
proper management of the cremation ground. This advise was
conveyed to D.D.A. and M.C.D. by my Secretary on 7'h
September, 2001. However, when the facts of the case and the
C orders of the High Court were put up on file, I had directed
D.D.A. on 23rd April, 2002 to make immediate efforts to re site
the Shamshan Bhumi and to put to use the land so vacated as
per the layout plan."
D 22. A writ petition filed thereagainst which was marked as WP
No.6855 of2004 has been dismissed in te1ms of an order dated 7111
May, 2004, the relevant part of which reads as under:-
" In compliance with these orders, another hearing took
place before the Hon 'ble Lieutenant Governor in which the
E petitioner was avowedly granted a hearing. By order dated
27.6,2003, the Lieutenant Governor has stated inter alia that
"on hearing the contention of the two parties and keeping in
view the judicial Orders, I reiterate my decision of23'd April,
2002". Counsel for the Petitioner contends that by reiterating
F the order dated 23 1d April, 2002 the situation has not been
remedied as they arc not even aware of the wording of that
Order.
In my view, too much emphasis has been laid on the extracted
words of the impugned order making a rderence to the orders
dated 23.4.2002. Of course. it \\\Hild have been legally preferable
not to nccdkssh mention those order~. The impugned Order
datl·d 27.(i.2(10_) takes in ctintcmplation the Award No.1755
dakd .2<1. l; I %-1 and tht: transkr of the land to the D.D.A. for
i! sl'l~in12 up ol ~ lm~i! ~1wr1~im~ ccntrL'. a primary scho(il and a
SHAKUR BAST! SHAM SHAN BHUMI S.S. (REGD.) v. 159
LT. GR., N.C.T OF DELHI & ORS. [SINHA, J.]
residential group housing. It also notes the allotment of an alternate A
site at Beriwala Bagh, close to the Shakur Basti site. If the entire
order is read, it will be evident that the Hon'ble Lieutenant
Governor had changed his earlier opinion in favour of the retention
of the Shamshan Bhumi at its present site, looking towards the
decisions given by this Court and the allotment of an alternate B
site. It is wholly immaterial whether the earlier order dated 23'd
April, 2002 had been conveyed to the Petitioner. The thought
process and the reasons for the decision of the Hon 'ble Lieutenant
Governor are fully contained in his Order dated 27.6.2003 which
has been passed after the Petitioner was granted a hearing." C
23. A writ appeal preferred thereagainst has summarily been
dismissed by a Division Bench of the said Court by reason of the
impugned judgment.
24. Mr. U.U. Lalit, learned senior counsel appearing for the D
appellant, would submit that ;
'
(i) in the absence of the order recalling order dated 7th
February, 2001 passed by the Lieutenant Governor having
been made available, the appellant's right to make an E
effective representation has been taken away.
(ii) If any reason had been assigned in the said order of 23rd
April, 2002, the appellant would have been able to raise
grounds assailing the same and as the same has not been
supplied the impugned order must be held to be violative F
of principles of natural justice.
(iii) By reason of the said order which was the subject matter
of the writ petition before the Delhi High Court, the
Lieutenant Governor merely reiterated his earlier order, G
which is apparently bad in law.
(iv) The order dated 23.04.2002 being the primary order, the
Lt. Governor could not have reiterated the same without
considering the details of the representation made by the
H
'
+
160 SUPREME COURT REPORTS [2007] 13 (Addi.) S.C.R.
A appellant dated 22.11.2002.
(v) Following the earlier order mechanically was an act of
misdirection in law on the part of the Lt. Governor.
(vi) When the learned Single Judge of the Delhi High Court
B had directed the appellant to go to the Lt. Governor, it
was bound to give effect to the judicial order upon
consideration of the fact of the matter judiciously.
25. Mr. Vishnu B. Saharya, learned counsel appearing on behalf
C of the Delhi Development Authority (DDA), on the other hand, would
submit that the site in question is no longer in use as a cremation
ground. Drawing our attention to various orders passed by the Delhi
High Court in a writ petition filed by Brahman Sabha Shakur Basti
which was also claiming itself to be managing the affairs of the cremation
D ground as also the writ petition filed by various cooperative societies
in whose favour allotment ofland had been made by DDA, the learned
counsel would contend that apparently dead bodies were being
cremated at the said place unauthorisedly. The Lt. Governor having
passed the order after taking into consideration all the contentions of
E the appellant, the High Court must be held to have been correct in
passing the impugned order.
26. The fact that there existed a cremation ground is not in
dispute. Furthermore the fact that the said land was acquired under the
provisions of the DDAAct is not in dispute. The land in question was
F shown to be a residential area in the lay out plan. Why and how the
award made in the Land Acquisition Proceedings was not and could
not be taken to its logical conclusion has not been disclosed. According
to the Municipal Corporation of Delhi as also DDA, the land was
allotted for setting up of a local shopping centre, a primary school and
G a resident group housing society. There was also a direction to shift the
cremation ground to Beri Wala Bagh, Shakurpur. Acquisition of the
land for the purpose ofDDA is not in question. An award was made,
the effect whereof is that the land vested in the Government ofNational
Capital Territory of Delhi.
H
SHAKUR BASTI SHAMSHAN BHUMI S.S. (REGD.) v. 161
LT. GR., N.C.T OF DELHI & ORS. [SINHA, J.)
27. We have noticed hereinbefore that in the first round oflitigation A
A
following the award made in the land acquisition proceedings, not only
various restraint orders but also a closure order of the cremation
ground was passed. Appellant might not have been impleaded as a
party therein but it is difficult to conceive that it was not aware thereof.
We have also noticed that another society presumably claiming itself to B
be managing the affairs of the said cremation ground had also filed a
writ petition. The same was dismissed.
28. The second round oflitigation started with challenging the
order of closure dated 3.06.1998 passed by the High Court but by the c
appellant by filing a writ petition. The said writ petition was dismissed.
Leaving recourse to its remedies on the judicial side, the appellant
moved the Lt. Governor on administrative side. The land in question
was directed to be allotted and on the basis thereof only the appellant
had gone back to the High Court. D
29. The learned Single Judge of the High Court who was a party
to the earlier orders passed in writ petition very graciously directed the
Lt. Governor to consider the matter afresh when it was brought to its
notice that the earlier order dated 7.09.2001 stood rescinded by an
order dated 23.04.2002. E
30. The order directing allotment of land was not a judicial or
a quasi-judicial order. It was an executive order. If an executive order
had been passed in ignorance of various judicial orders passed by the
High Court, the same could be reviewed. In view of the fact that the F
development plans have the force of a statute and the purpose for
which the area was earmarked by the development authority therein
we do not see any reason as to why the mistake committed by the
Lieutenant Governor could not be rectified.
31. The purported letter proposing allotment of land by the Lt. G
Governor did not confer any legal right on the appellant. Only a desire
.j was expressed by the said authority that tlie Municipal Corporation of
Delhi should officially take over the cremation ground for which DDA
was to make a formal allotment to it whereafter only a Memorandum
H
162 SUPREMECOURTREPORTS [2007] 13(Addl.)S.C.R.
A of Understanding could be entered into by and between the appellant
and the Commissioner, MCD. Action pursuant to or in furtherance of
'
the said order was merely undertaken, but no final order was passed
conferring any legal right upon the appellant. Apart from furnishing a
•
;
copy of the said order of the Lt. Governor dated 7.09.2001 and a
B copy of the letter issued by the Competent Authority of DDA to the
Commissioner, MCD dated 26.11.2001, no docu.'llent was executed
in its favour. For possessing a legal title, a deed was required to be
executed by the MCD in favour of the appellant. Even such an allotment
was carried into effect, the same would have been illegal being contrary
c to the development plan. Without a valid order for change in user, a
site meant for a shopping complex, a school and user thereof for
residential purpose, it could not have been directed to be used as a
cremation ground. (See The Bihar Eastern Gangetic Fishermen
Cooperative Society Ltd. Vs. Sipahi Singh and Others (1977) 4
D sec 145.
32. It is one thing to say that the cremation ground could be
directed to be continued at the old site but it is another thing to say
that the appellant acquired any legal right over the land.
E 33. Harsh Vihar Cooperative House Building Society and Mrs.
Jyotsna Kashyap also filed writ petitions before the Delhi High Court
whereupon directions to close the cremation ground was issued. It
may be that the matter was taken to the Appellate Court but the LPA
was also withdrawn. The said order attained finality.
F
34. It is in the aforementioned situation when a writ petition was
filed by the appellant in the Delhi High Court, viz., Civil Writ Petition
No. 5567 of2007, the order dated 23.10.2002 came to be passed.
It only provided for a relief of grant of an opportunity of being heard
G before the Lt. Governor in favour of the appellant.
35. Appellant, as noticed hereinbefore, before the Lt. Governor
as also before us, raised a question in regard to his competence to
review his own order. The said contention proceeded on the premise
that an order of allotment was required to be reviewed. Apart from the
H
SHAKUR BAS TI SHAMS HAN BHUMI S.S. (REGD.) v. 163
LT. GR., N.C.T OF DELHI & ORS. [SINHA, J.]
fact that the principle governing review of a judicial or statutory order A
has no application in the matter of administrative orders, the Lt.
Governor, as noticed hereinbefore, in its order dated 7.09.2001 did
not direct allotment of the land in favour of the appellant. He merely
expressed his desire and directed the manner in which the same should
be done. B
36. The Lt. Governor acts as a statutory authority under the
DDAAct. We are not sure as to whether he has any role to play in
regard to the affairs of the Municipal Corporation of Delhi. If not, the
said order was per se illegal. c
37. It may be that in the writ petitions filed by Harsh Vihar
Cooperative House Building Society and Mrs. Jyotsna Kashyap, the
appellant was not a party but we may notice that even in the writ
petition filed by the appellant questioning the order of the Lt. Governor
dated 22.04.2003 (communicated to the appellant on 27.06.2003) D
they were not impleaded as respondents, although they were parties
before the said authority.
38. The learned Subordinate Judge has also passed an order in
a suit filed by one Balvant Rai in 1991. What was the nature of the E
decree passed by the Subordinate Judge has not been disclosed. The
only contention raised in the list of dates is that the same was a
collusive suit. With whom, the said Balvant Rai colluded or what was
the nature and purport of the decree had not been disclosed. Some
orders appear to have been passed also by the Additional District F
Judge. We do not know whether the Additional District Judge has
passed the order in the same proceeding or in some other proceedings.
If the judgments directing user of the land iii conformity with the Zonal
Development Plan and further directing that a cremation ground should
not be allowed to operate become final, an order passed in ignorance G
thereof would be a nullity.
.i 39. it appears from the order dated 22.04.2003 that group
housing societies were also heard by the Lt. Governor. They evidently
claimed their own rights thereupon. Even then, they were not impleaded
H
164 SUPREME COURT REPORTS [2007] 13 (Addi.) S.C.R.
A as parties in the writ application. In their absence, the >vrit petition was
not maintainable.
40. As a statutory authority, the Lt. Governor could not ignore
the development plan. As the earlier order passed by a statutory
~ authority was a nullity, an order recalling the same shall not be allowed
to operate only because certain formalities (assuming there were some)
in passing the same have not been complied with.
41. It is now well-known that a writ court in exercise of its
jurisdiction under Article 226 of the Constitution of India need not
C quash an order if it gives rise to another illegal order or may quash
both the orders.
42. In this view of the matter we are of the opinion that no case
has been made out for interference with the impugned judgment.
D 43. For the reasons aforementioned, we do not see any infirmity
in the impugned judgment. The appeal is dismissed with costs payable
to D.D.A. Counsel's fee assessed at Rs.25,000/-.
S.K.S. Appeal dismissed.
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