Union of India
through General Manager Northern Railways Vs. Chairman, UP State Electricity
Board & Ors.
[Transferred Case
No.37 of 2001]
U.P. Power
Corporation Ltd. & Ors. Vs. Railway Board through its Chairman & Ors.
[Transferred Case
No.38 of 2001]
J U D G E M E N T
H.L. Gokhale J.
1.
Both
these transferred cases are concerning the legality of construction of the
transmission lines by Northern Railways to draw power from the power plants of
the National Thermal Power Corporation Ltd. (`NTPC' for short), and no more
from the transmission lines of Uttar Pradesh State Electricity Board (`UPSEB' for
short), through which they were drawing power earlier. 2 Facts leading to these
transferred cases are as follows:-
2.
UPSEB
was purchasing power from the power plants of NTPC, and supplying the same to
Northern Railways through transmission lines of the UPSEB. Railways found the
tariff of UPSEB to be excessive, and therefore, decided to enter into a power purchasing
agreement with NTPC, and to construct their own transmission lines to carry the
supply. The Railways moved the Central Govt. for permission in this behalf, and
obtained approval from the cabinet committee on 6.6.1990. This was recorded in
the then Railway Minister's letter addressed to the then Minister of Energy
dated 24.8.1990. Later, it was decided that 100 MW power will be allocated to the
Railways from Dadri Gas Station of NTPC. In case of a shortfall, the
requirement would be met from the Auraria Gas Station of NTPC. The above
allocation to Railways was to be subject to entering into a power purchasing agreement
with NTPC. This is recorded in the letter dated 10.2.1998 from Deputy Secretary
to the Ministry of Power addressed to the Chairman, Central Regulatory Electricity
Authority. Accordingly, Railways entered into the necessary power purchasing
agreement with NTPC in March 1998.
3.
Thereafter,
Railways started constructing transmission lines from Dadri Gas Power Plant and
Auraria Gas Power Plant of NTPC upto the sub-station of Railways at Dadri,
District Ghaziabad, U.P. This led to UPSEB to issue a threat to demolish the
said transmission lines, and a notice was issued to the Railways on 7.9.1999. The
notice was issued by the Superintendent Engineer, Electricity Transmission Circle,
U.P. State Electricity Board, Ghaziabad, U.P. to the Chief Electrical Engineer (Construction),
Northern Railways, Tilak Bridge, New Delhi, 3calling upon the Railways to
immediately stop the activity of construction of distribution/service lines. The
notice further stated that if the Railways did not stop or refrain from these activities
inspite of receipt of the notice, UPSEB will be constrained to take steps of
its own for demolition of the said lines and will also sue for damages suffered
or to be suffered by UPSEB consequent upon this construction.
4.
This
notice led the Railways to file Writ Petition No.6802/1999 in the High Court of
Delhi to challenge the said notice. The High Court vide its order dated 9.11.1999
stayed operation of this notice/order. The High Court subsequently passed
another order on 12.5.2000 allowing the Railways to carry on their work of construction.
5.
After
the construction of transmission lines was completed, the Railways started
drawing power from the NTPC power plants through those lines. That led UPSEB to
file Writ Petition No.3588/2001 in Allahabad High Court to challenge the act of
Railways of drawing electrical energy from NTPC through Railway's own service
lines.
6.
Since,
two petitions were filed in two different High Courts arising out of the same
cause of action, the Railways sought transfer of these two writ petitions to
the Supreme Court of India, in order to avoid the multiplicity of proceedings
and conflicting decisions. The same having been allowed, W.P. No.6802/1999 in
Delhi High Court has been numbered as Transferred Case No.37/2001 and W.P. 43588/2001
in Allahabad High Court has become Transferred Case No.38/2001 in this Court.
7.
Union
of India through General Manager, Northern Railways is the petitioner in Transferred
Case No.37/2001. Railway Board, General Manager Northern Railways and Dy. Chief
Engineer/Electrical (Construction) of Northern Railways are respondent No.1 to
3 in Transferred Case No.38/2001. UPSEB is the first respondent in Transferred
Case No.37/2001 and petitioner in Transferred Case No.38/2001. NTPC and its
officer are respondents No.4 to 6 in Transferred Case No.38/2001. The parties are
referred to as Railways, UPSEB and NTPC for convenience. Shri P.P. Malhotra,
learned Additional Solicitor General has appeared for Railways, Smt. Rachna
Joshi Issar has appeared for NTPC, and Shri Pradeep Misra has appeared for
UPSEB. The submissions of the rival parties:-
8.
It
was submitted on behalf of the Railways by Shri Malhotra that the action of the
Railways to erect, operate, maintain or repair any electric traction equipment was
very much within the jurisdiction of the Railways, inasmuch as Sections 11 (a)
and (g) of the Railways Act, 1989 empower them to carry out such activity and
all such necessary works for the purposes of constructing or maintaining a
railway. These Sections 11 (a) and (g) read as follows:- "11. Power of railway
administrations to execute all necessary works.- Notwithstanding anything
contained in any other law for the time being in force, but subject to the provisions
of this Act and the provisions of any law for the acquisition of land for a public
purpose or for companies, and subject also, in the case of a non-Government
Railway, to the provisions of any contract between the non-Government railway
and the Central Government, a railway administration may, for the purposes of constructing
or maintaining a railway-
a. make or construct in
or upon, across, under or over any lands, or any streets, hills, valley, roads,
railway, tramways, or any rivers, canals, brooks, streams or other waters, or
any drains, water-pipes, gas-pipes, oil-pipes, sewers, electric supply lines, or
telegraph lines, such temporary or permanent inclined-planes, bridges, tunnels,
culverts, embankments, aqueducts, roads, lines of railways, passages, conduits,
drains, pies, cuttings and fences, in-take wells, tube wells, dams, river training
and protection works as it thinks proper;
b. ....................
c. ......................
d. ..................
e. ..................
f. .................
g. erect, operate, maintain
or repair any electric traction equipment, power supply and distribution
installation in connection with the working of the railway;
and............." (emphasis supplied)
9.
The
NTPC has also the authority to sell power to Railways in its capacity as a generating
company under Section 43A of the Electricity Act, 1948 This section reads as
follows:- "43A. Terms, conditions and tariff for sale of electricity by Generating
Company. - (1) A Generating Company may enter into a contract for the sale of electricity
generated by it- (a) with the Board constituted for the State or any of the
States in which a generating station owned or operated by the company is
located; (b) with the Board constituted for any other State in which it is carrying
on its activities in pursuance of sub-section (3) of section 15A; and 6 (c) with
any other person with consent of the competent government or governments. [(2) The
tariff for the sale of electricity by a Generating Company to the Board shall
be determined in accordance with the norms regarding operation and the Plant Load
Factor as may be laid down by the Authority ad in accordance with the rates of depreciation
and reasonable return and such other factors as may be determined, from time to
time, by the Central Government, by notification in this Official Gazette: Provide
that the terms, conditions and tariff for such sale shall, in respect of a Generating
Company, wholly or partly owned by the Central Government, be such as may be determined
by the Central Government and in respect of a Generating Company wholly or partly
owned by one or more State Governments be such as may be determined, from time to
tome, by the government or governments concerned.]]" (emphasis supplied)
10.
The
generating company has, however, to obtain necessary clearance from the
competent Govt. before entering into a contract for sale of electricity to any
person other than an Electricity Board. NTPC is a wholly owned company of the Central
Govt. It has, therefore, to obtain permission from the Central Government, which
it had. `Competent Government' is defined under Section 2 (3A) of the 1948 Act,
which reads as follows:- "2. Interpretation............... (3A) "competent
government" means the Central Government in respect of a Generating Company
wholly or partly owned by it and in all other cases the Government of the State
in which the generating station of a Generating Company is located or proposed
to be located."
11.
Railways
had also obtained the necessary permission from the Government of India and, thereafter,
they had entered into the necessary agreement with NTPC. It was pointed out
that the authority of the Railways to act as above is left unhindered under Section
173 of the Electricity Act, 2003 [which Act replaced the Electricity (Supply) Act
1948]. This Section reads as follows:- "173. Inconsistency in laws. -
Nothing contained in this Act or any rule or regulation made thereunder or any instrument
having effect by virtue of this Act, rule or regulation shall have effect in so
far as it is inconsistent with any other provisions of the Consumer Protection Act,
1986 (68 of 1986) or the Atomic Energy Act, 1962 (33 of 1962) or the Railways
Act, 1989 (24 of 1989)."
12.
The
submissions of Shri Malhotra, learned counsel for the Railways were supported
by Smt. Rachana Joshi Issar, learned counsel for NTPC. She also stressed the
fact that NTPC was required to obtain only the consent from the Govt. of India
under Section 43A of the Electricity Supply Act, 1948, and that consent had been
obtained prior to entering into the agreement from the Central Govt. which was
the competent government under Section 2 (3A) of 1948 Act.
13.
The
submissions on behalf of the Railways and NTPC were countered by Shri Pradeep
Misra, learned counsel for UPSEB. In his submission, Govt. of India was not
competent to grant such permission to Railways to buy power from NTPC, or to construct
these transmission lines. Such activity ought to have been sanctioned by the UP
State Electricity Commission/State Government under Section 27D of the 1910
Act. This Section 27D reads as follows:- "27D. Grant of transmission license
by the State Government: (1) Until the State Government Commission is established
the State Government and thereafter the State Commission may, subject to the
provisions of sub section (4), grant a transmission license to any
person."
14.
With
respect to the authority of the Railways under Section 11 (a) and (g) of the
Railways Act, 1989, Shri Misra submitted that this Section can be read to
authorize the Railways to have their electricity supply and lines only for working
and maintenance of railways, and not for transmitting energy from generating stations.
If transmitting lines were to be constructed, a license was necessary to be obtained.
Section 27D of the 1910 act cannot be ignored while reading Section 11 (a) and
(g) of the Railways Act, 1989. Consideration of the rival submissions
15.
i.
We
have considered the arguments by the rival parties. As far as reliance on
Section 27D of the Electricity Act, 1910 is concerned, it is to be noted that
this Section came into force on 31.12.1998. The agreement between Railways and
NTPC was signed prior thereto in March, 1998. That apart, it is true that in terms
of Section 27D of the Indian Electricity Act, 1910 and Sections 12 and 14 of the
Electricity Act, 2003, no person other those authorized or otherwise exempted by
an Appropriate Government or the Appropriate Commission shall be entitled to engage
in the activities of transmission or distribution of electricity. However, in
the case of Railways, the transmission of electricity is governed by the
provisions of a special enactment, i.e. the Railways Act, 1989 and not by the
enactments governing electricity.
ii.
That
apart, Sections 11 (a) and (g) of the Railways Act, 1989 clearly authorize the
Railways to construct necessary transmission lines, dedicated for their own
purpose. It is not possible to read this Section in a restricted manner in
which it was sought to be conveyed. This is because the principal part of
Section 11 authorizes the Railway administration to execute all necessary works
for the purpose of constructing or maintaining railways. Sub-section (a) of
this Section authorizes Railways to make or construct in or upon, across, under
or over any lands electric supply lines. Under sub-Section (g), thereof, the
Railways are authorized to erect, operate, maintain or repair any electric traction
equipment, power supply and distribution installations in connection with
working of the railways. This sub-section clearly empowers Railways to erect any
electric traction equipment, and power supply and distribution installation which
is in connection with the work of the Railways. This will certainly include
construction of transmission lines. That being so, there is no substance in
this submission made by the UPSEB as well.
iii.
Besides,
Section 26A (1) of the Electricity Supply Act, 1948 exempts the generating
company from the requirement of taking a license under Electricity Act, 1910. This
section 26A (1) reads as follows:- "26A. Applicability of the provisions of
Act 9 of 1910 to Generating Company - (1) Notwithstanding anything contained in
sub-section (2), nothing in the Indian Electricity Act, 1910, shall be deemed
to require a Generating Company to take out a licence under that Act, or to
obtain sanction of the State Government for the purpose of carrying on any of
its activities."
iv.
The
generating company does have the necessary authority to enter into a power
purchasing agreement under Section 43A of the Electricity Supply Act, 1948. NTPC
has been permitted by the Central Government to enter into an agreement. Railways
and NTPC both have obtained the permission from the concerned ministries prior
to entering into this agreement. In the instant case, the 10Railways found the
tariff of UPSEB to be excessive and therefore, they decided to construct their
own transmission lines. This being so, the action on the part of the Railways
of constructing transmission lines, and drawing power from thermal power plants
of NTPC, was perfectly legal. Even under the Electricity Act, 2003, a direct sale
of power by a generating company to a consumer is specifically permitted under
Section 10 (2) thereof.
16.
In
the circumstances, the notice dated 7.9.1999 given by the UPSEB was totally
uncalled for, and is required to be quashed and set-aside. Accordingly, the Transferred
Case No.37/2001 will have to be allowed, and Transferred Case No.38/2001 will
have to be dismissed.
17.
In
the circumstances, we pass the following order:-
a. Transferred Case
No.37/2001 is allowed. The impugned notice/order dated 7.9.1999, issued by UPSEB
to the Northern Railways, is hereby quashed and set-aside.
b. Transferred Case
No.38/2001 is dismissed.
c. There will be no
order as to costs.
...................................J.
(P. Sathasivam)
...................................J.
(H.L. Gokhale)
New
Delhi
February
9, 2012.
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