Sale of land issue

The buyer (a salaried employee working in an MNC) has purchased 20 plots (30X40 size each) for his future livelihood 5 years ago from a Property Builder who has a Joint Development Agreement and Power of Attorney with the land owner to develop a residential layout by converting the agriculture land to Residential layout and getting all necessary approvals (like DC conversion, Pollution Control, Town Planning, etc) The buyer has entered into an MoU with the Property Builder for the purchase of 20 plots and has paid more than 50% of the sale value. The builder had committed that he will complete the residential layout project in 2 years time but its more than 5 years now and builder has not started any development work although he has got the DC conversion and pollution control and few other approvals. Having questioned the builder about the delay in getting the residential layout completed, he says he is yet to get the required approvals from the Government and is expected anytime after which he will fast track to complete the residential layout. the builder has sold more than 60% plots of his share to different buyers and has collected the full money from several buyers. The builder is indefinitely delaying the completion of the project stating he cannot start the development without getting the required approval from Government, which he claims will receive in few weeks. He has been giving the same reason for more than 2 years and the buyer has lost hope in this project and has asked for a refund and the builder is not willing to pay. Can the buyer approach the consumer court and file a consumer suit against the builder to get the refund of money that he has paid to the builder? Any insights on this would be highly appreciated.