Full Judgment Text
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REPORTABLE
IN THE SUPREME COURT OF INDIA
CIVIL APPELLATE JURISDICTION
CIVIL APPEAL NO. 11450 OF 2014
GAIL (INDIA) LTD. Appellant(s)
VERSUS
PETROLEUM AND NATURAL GAS REGULATORY
BOARD & ORS. Respondent(s)
J U D G M E N T
KURIAN, J.
1. The main issue raised in this appeal is whether
the denial of access to common carrier capacity on
reasonable endeavor basis to the two pipelines laid
by the appellant to the second respondent, is
discreminatory and amounting to Restrictive Trade
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Practices or not. In the nature of the order we are
required to pass in this case, it is unnecessary to
go in detail to the factual matrix.
2. The issue arises under the Petroleum and Natural
Gas Regulatory Board (Authorising entities to lay,
build, operate or expand natural gas pipeline)
Regulations, 2008 and Petroleum and Natural Gas
Regulatory Board (Guiding Principles for Declaring or
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Authorising Natural Gas Pipeline as Common Carrier or
Contract Carrier) Regulations, 2009.
3. In terms of the Regulations, the appellant
published the available common carrier capacity for
the prospective contracting by any third party.
4. On 19.11.2012, the appellant published an
Expression of Interest for booking capacity by
intrested parties mentioning therein that the common
carrier capacity thus available is on Ship or Pay
basis.
5. Respondent No. 2, on 04.05.2013, expressed its
desire to avail the common carrier capacity on
reasonable endeavour basis.
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6. Failing to resolve the disputes between ship or
pay and reasonable endeavour basis, Respondent No.2
filed a complaint before the Petroleum and Natural Gas
Regulatory Board (in short, "the Board") on
21.09.2013.
7. The Board, after elaborate discussions, allowed
the complaint. We shall extract the relevant portion
as under :-
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" .........
52. The respondent's explanation does
not deserve any acceptability or
credibility at all because the common
carrier capacity has to be non-
discriminatory reserved on 'first-cum-
first-serve' basis without making any
specific classification for reservation
of common carrier capacity.
53. The practice adopted by the
respondent on the one hand reveals
discrimination towards the customer like
complainant and on the other hand,
results in additional burden for the
shippers who are not the regular and
long standing customers of the
respondent and such practices also
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discourage fair competition in the
market.
54. In view of above, it would not be
appropriate for us to direct the
respondent for booking common carrier
capacity on reasonable endeavour basis
but we hold that the practice being
adopted by the respondent, while booking
common carrier capacity, is not only
discriminatory, it also amounts to
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restrictive trade practice and must
follow the consequence under Section 28
in the light of the provision of Section
11 (a) read with Section 12(1)(b)(v) of
the Petroleum & Natural Gas Regulatory
Board Act.
55. On giving careful consideration to
all the facts and circumstances, we
hereby direct the respondent to
immediately cease its restrictive trade
practice of preventing the shippers like
complainant, the access of common
carrier capacity in its common carrier
pipeline and also impose civil penalty
of Rs. 1.00 lac under Section 28 of the
PNGRB Act, 2006, to be deposited within
a month from today."
JUDGMENT
8. Aggrieved, the appellant took up the matter
before the Appellate Tribunal for Electricity (in
short, "Appellate Authority"), leading to the impugned
order dated 28.11.2014, by which the Appellate
Authority dismissed the appeal in the following
terms :-
"On giving careful consideration to the
facts and circumstances of the Appeal,
including the pleadings and submissions
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made by the parties, we are of the
opinion that it has been established
that the Appellant, in the instant case,
while booking common carrier capacity in
its pipeline, has acted in a
discriminatory manner leading to
restrictive trade practices and as such,
the Appellant is liable to pay the
penalty of Rs. 1 lakh to the Board.
Thus, the Impugned Order is upheld.
Consequently, the Appeal is hereby
dismissed"
9. Feeling aggrieved by the impugned order passed by
the Appellate Authority, the appellant has preferred
this appeal before us.
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10. Though the parties have taken elaborate
contentions both before the Board as well as before
the Appellate Authority, having extensively heard
Mr.Tushar Mehta, learned Additional Solicitor General
appearing for the appellant and Mr. Parag Tripathi,
learned senior counsel appearing for the second
respondent, we find that the the following crucial
aspect has not been considered either by the Board or
by the Appellate Authority. The main arguments of the
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learned counsel for the respondents rests on the
application of the Petroleum and Natural Gas
Regulatory Board (Affiliate Code of Conduct for
Entities Engaged in Marketing of Natural Gas and
Laying, Building, Operating or Expanding Natural Gas
Pipeline) Reglations, 2008 and without addressing this
issue, the dispute as raised in the complaint cannot
be resolved.
11. In the facts and circumstances of the case, we
are of the view that unless the issue, which is
formulated below, is addressed, the complaint filed by
the second respondent before the Board should not have
been disposed of. Therefore, we propose to frame the
following issue and send the matter back to the
Board :-
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Issue - To what extent, the Petroleum and Natural Gas
Regulatory Board (Affiliate Code of Conduct for
Entities Engaged in Marketing of Natural Gas and
Laying, Building, Operating or Expanding Natural Gas
Pipeline) Reglations, 2008 are applicable to the
complainant.
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12. While addressing this issue, the interplay between
the scheme as per the Act and the regulations will
also be addressed.
13. We find that the pleadings by both the parties
have not been satisfactory before the original
authority. Therefore, as requested by the learned
senior counsel appearing for both the sides, we permit
both sides to file additional pleadings before the
Board. The complainant may file its additional
pleadings within two weeks from today and the
appellant will file its reply within two weeks
thereafter. Based on the additional pleadings, we
make it clear, it will be open to the Board to raise
additional issues, if required.
14. Having regard to the fact that the original
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complaint was filed in the year 2013, we direct the
Board to dispose of the complaint within six months
from today. We also grant liberty to the
complainant, if so required, to make an application
before the Board for an appropriate interim order
after completion of the pleadings and in which case,
the Board may dispose of the application within three
months.
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15. In that view of the matter, we set aside the
impugned order passed by the Appellate Authority
dated 28.11.2014 in Appeal No. 52 of 2014 as also the
original order passed by the Board dated 26.12.2013
in Case No. 68 of 2013.
16. We make it clear that we have not expressed any
opinion on the merits of the case and it will be open
to both the parties to raise all available
contentions before the Board at any stage.
17. With the above observations and directions, the
Civil Appeal is disposed of with no order as to costs.
.......................J.
[ KURIAN JOSEPH ]
.......................J.
[ ROHINTON FALI NARIMAN ]
JUDGMENT
New Delhi;
January 13, 2016.
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