Holding

The CCI may investigate alleged anti‑competitive agreements in the telecom sector only after the TRAI has first decided the jurisdictional facts, but its jurisdiction is not completely ousted by the TRAI Act.

Summary

Reliance Jio Infocomm Ltd (RJIL) filed an information under the Competition Act, 2002 alleging that the three incumbent dominant operators (Bharti Airtel, Vodafone India and Idea Cellular) and the Cellular Operators Association of India (COAI) colluded to deny or delay augmentation of Point of Interconnection (POI) capacity, thereby restricting RJIL's market entry and violating mobile number portability rules. The Competition Commission of India (CCI) held a prima facie case and, under Section 26(1), directed the Director General to investigate. The incumbents challenged the CCI's jurisdiction, arguing that the dispute fell within the exclusive domain of the Telecom Regulatory Authority of India (TRAI) under the TRAI Act, 1997. The Supreme Court held that while TRAI is the appropriate first‑instance regulator for technical and contractual issues in the telecom sector, the CCI retains jurisdiction to examine anti‑competitive agreements once TRAI has determined the relevant factual matrix. Consequently, the Court upheld the Bombay High Court’s quashing of the CCI’s order as premature and dismissed the appeals, directing that any CCI investigation can proceed only after TRAI’s findings on the jurisdictional facts.

Issues considered

The extent of CCI's jurisdiction under the Competition Act, 2002 to investigate alleged anti‑competitive agreements in the telecom sector.
Whether the matters of POI augmentation and mobile number portability are exclusive to TRAI under the TRAI Act, 1997, thereby ousting CCI's jurisdiction.
The nature of the order passed by CCI under Section 26(1) – whether it is administrative or quasi‑judicial for purposes of judicial review under Article 226.
The applicability of Section 21A of the Competition Act requiring reference to a sectoral regulator before CCI can act.

Legislation cited

Competition Act, 2002s. 14, s. 19, s. 21, s. 21A, s. 26, s. 27, s. 3, s. 4, s. 45, s. 46, s. 60, s. 61, s. 62
Indian Telegraph Act, 1885s. 4
Indian Wireless Telegraphy Act, 1933
Information Technology Act, 2000
Telecom Regulatory Authority of India Act, 1997s. 11, s. 12, s. 13, s. 14A, s. 15, s. 21, s. 27

Subjects

Competition Act 2002TRAI Act 1997anti‑competitive agreementcartelpoint of interconnectionmobile number portabilityjurisdictionsectoral regulatormarket regulatorSection 26 orderArticle 226 writ petition

Judgment

[2018] 14 S.C.R. 489 489

COMPETITION COMMISSION OF INDIA A
v.
BHARTI AIRTEL LIMITED AND OTHERS
(Civil Appeal No. 11843 of 2018)
DECEMBER 05, 2018 B
[A. K. SIKRI AND ASHOK BHUSHAN, JJ.]
Competition Act, 2002: ss.14, 19, 21, 21A and 26 – RJIL filed
information under the Act alleging anti-competitive agreement/
cartel having been formed by three major telecom operators (IDOs)
C
along with COAI – Grievance of RJIL was that the IDOs intentionally
ignored its request to augment Point of Interconnection (POIs) for
access, National Long Distance and international Long Distance
services, as the capacity already provided to it was causing huge
POI congestion resulting in call failures on its network – Apart
from IDOs, certain allegations were made against COAI also – It D
was alleged that IDOs were denying mobile number portability
(MNP) requests of customers who wanted to switch to RJIL competing
service and that COAI was acting at the behest of IDOs against the
interest of competing member i.e. RJIL and not for the common interest
of industry and consumers as a whole – CCI held that prima facie
E
case existed and an investigation was warranted and directed
Director General to cause investigation in the case – Jurisdiction
of CCI to deal with the matter was challenged by IDOs and COAI –
Held: As the TRAI is constituted as an expert regulatory body which
specifically governs the telecom sector, the said aspects of the
disputes are to be decided by the TRAI in the first instance – These F
are jurisdictional aspects – TRAI, being a specialised sectoral
regulator and also armed with sufficient power to ensure fair, non-
discriminatory and competitive market in the telecom sector, is better
suited to decide the said issues – The concepts of “subscriber”,
“test period”, “reasonable demand”, “test phase and commercial
G
phase rights and obligations”, “reciprocal obligations of service
providers” or “breaches of any contract and/or practice”, arising
out of TRAI Act and the policy so declared, are the matters within
the jurisdiction of the Authority/TDSAT under the TRAI Act only –
Once that exercise is done and there are findings returned by the
H
489
490 SUPREME COURT REPORTS [2018] 14 S.C.R.

A TRAI which lead to prima facie conclusion that IDOs have indulged
in anti-competitive practices, CCI can be activated to investigate
the matter going by the criteria laid down in relevant provisions of
Competition Act – Telecom Regulatory Authority of India Act, 1997
– Telegraph Act, 1885 – Telecommunication – Jurisdiction.
B Competition Act, 2002: Salient features of the Act, discussed.
Competition Act, 2002: Competition Commission of India
(CCI) – Duties and functions – The CCI is entrusted with duties,
powers and functions to deal with three kinds of anti-competitive
practices – These are: (a) where agreements are entered into by
C certain persons with a view to cause an appreciable adverse effect
on competition; (b) where any enterprise or group of enterprises,
which enjoys dominant position, abuses the said dominant position;
and (c) regulating the combination of enterprises by means of mergers
or amalgamations to ensure that such mergers or amalgamations
do not become anti-competitive or abuse the dominant position which
D they can attain – The purpose of CCI is to eliminate such practices
which are having adverse effect on the competition, to promote and
sustain competition and to protect the interest of the consumers and
ensure freedom of trade, carried on by the other participants, in
India – For the purpose of conducting an inquiry, the CCI is
E empowered to call any person for rendering assistance and/or
produce the records/material for arriving at even the prima facie
opinion.
Competition Act, 2002: s.26(1) – Writ petition against order
under s.26(1) of 2002 Act – Maintainability of – RJIL filed
F information under the Act alleging anti-competitive agreement/cartel
having been formed by three major telecom operators (IDOs) along
with COAI – CCI exercised its right under s.26 and held that prima
facie case existed and an investigation was warranted into the matter
and directed Director General to cause investigation in the case –
In writ petition, High Court was called upon to decide as to whether
G the jurisdiction of the CCI was entirely excluded or to what extent
the CCI could exercise its jurisdiction in these cases when the matter
could be dealt with any another regulator, namely, the TRAI – Held:
When such jurisdictional issues arose, the writ petition would clearly
be maintainable – Constitution of India – Art.226 – Judicial review.
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COMPETITION COMMISSION OF INDIA v. BHARTI AIRTEL 491
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Competition Act, 2002: s.26(1) – Whether the High Court A
could give its findings on merits – Held: Once the order under s.26(1)
of the 2002 Act is held to be administrative in nature and that it was
merely a prima facie opinion directing the Director General to carry
the investigation, the High Court was not competent to adjudge the
validity of such an order on merits – The observations of the High
B
Court giving findings on merits, therefore, were not appropriate –
At the same time, since the order of the High Court is upheld on the
aspect that the CCI could exercise jurisdiction only after proceedings
under the TRAI Act had concluded/attained finality, the ultimate
direction given by the High Court quashing the order passed by the
CCI is not liable to be interfered with as such an exercise carried C
out by the CCI was premature.
Telecom Regulatory Authority of India Act, 1997: Salient
features of the Act, discussed.
Disposing of the appeals, the Court
D
HELD : 1.1 The Competition Act, 2002 deals with three
kinds of practices which are treated as anti-competitive and are
prohibited. These are: (a) where agreements are entered into
by certain persons with a view to cause an appreciable adverse
effect on competition; (b) where any enterprise or group of
enterprises, which enjoys dominant position, abuses the said E
dominant position; and (c) regulating the combination of
enterprises by means of mergers or amalgamations to ensure
that such mergers or amalgamations do not become anti-
competitive or abuse the dominant position which they can attain.
The CCI is entrusted with duties, powers and functions to deal F
with three kinds of anti-competitive practices. The purpose is to
eliminate such practices which are having adverse effect on the
competition, to promote and sustain competition and to protect
the interest of the consumers and ensure freedom of trade, carried
on by the other participants, in India. For the purpose of
conducting such an inquiry, the CCI is empowered to call any G
person for rendering assistance and/or produce the records/
material for arriving at even the prima facie opinion.
[Paras 67, 68][551-B-C; 558-A-C]

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492 SUPREME COURT REPORTS [2018] 14 S.C.R.

A Excel Crop Care Limited v. Competition Commission of
India and Another (2017) 8 SCC 47 : [2017] 5 SCR
901 – relied on
1.2 While inquiring into any alleged contravention and
determining whether any agreement has an appreciable adverse
B effect on competition, factors which are to be taken into
consideration are mentioned in sub-section (3) of Section 19.
These include creation of barriers to new entrants in the market,
driving existing competitors out of the market and foreclosure
of competition by hindering entry into the market. All these
activities have connection with the ‘market’. The word ‘market’
C has reference to ‘relevant market’. As per sub-section (5) of
Section 19, such relevant market can be relevant geographic
market or relevant product market. The instant case relates to
telecommunication market. [Para 69][558-C-E]
2.1 The telecom market is regulated by the statutory regime
D contained in the TRAI Act. Under the said Act, TRAI is
established as a regulator which exercises control/supervision
and also provides guidance to the telecom/mobile market. This
statutory body is required to function as per the provisions of the
TRAI Act as well as the Rules and Regulations framed thereunder.
E Additionally, the telecom companies are also governed by
licence agreements entered into between the Central
Government and such service providers, for providing telephone/
telecommunication services to the customers/subscribers.
[Para 71][559-C-D]

F 2.2 Some of the features which govern the
telecommunication industry are: (a) To protect the interest of
the service providers and consumers of the telecom sector and
to permit and ensure technical compatibility and effective inter-
relationship between different service providers and for ensuring
compliance of licence conditions by all the service providers,
G TRAI was constituted under the Telecom Regulatory Authority
of India Act, 1997. TRAI is a recommendatory/advisory and
regulatory body discharging the functions envisaged under sub-
section (1) of Section 11 of the said Act. TRAI, inter alia, is
charged with ensuring fair competition amongst service
H
COMPETITION COMMISSION OF INDIA v. BHARTI AIRTEL 493
LIMITED AND ORS.

providers, including fixing the terms and conditions of entire A
activity between the service providers and laying down the
standards of Quality of Service (QoS) to be provided by each
service provider. In exercise of its functions, TRAI has issued
detailed Regulations for telecom services, including fixation and
revision of tariffs (Tariff Order), fixation of Inter-connect Usage
B
Charges (IUC), prescription of quality of service standards, etc.
(b) The Telecom Service Providers, which include the
respondents as well as RJIL, provide telecommunication access
service and are PAN India Telecom Service Providers. They are
governed by the Cellular Mobile Telephone Service (CMTS)/
Unified Access Service Licence (UASL) issued by the C
Telecommunications Department, Government of India under
section 4 of the Telegraph Act. (c) The Central Government has
the exclusive privilege of establishing, maintaining and working
telegraphs under the Telegraph Act and the Central Government
is authorised to grant licence on such terms and conditions and
D
in consideration of such payment as it thinks fit to any person to
establish, maintain or work as telegraph within any part of the
country. By virtue of Section 4 of the Telegraph Act, a service
provider is duty bound to enter into a licence agreement with the
former for unified licence, with authorisation for provision of
services, as per the terms and conditions prescribed in the E
Schedule. As a condition of the said licence, the licensee agrees
and unequivocally undertakes to fully comply with the terms and
conditions stipulated in the licence agreement without any
deviation or reservation of any kind. The licence is governed by
the provisions of the Telegraph Act, the Indian Wireless
F
Telegraphy Act, 1933, the TRAI Act and the Information
Technology Act, 2000, as modified or regulated from time to time.
[Para 73][565-G-H; 566-A-G]
2.3 The interconnection agreement, inter alia, provides for
the following clauses: (a) to meet all reasonable demand for the
transmission and reception of messages between the interconnect G
systems; (b) to establish and maintain such one or more POIs as
are reasonably required and are of sufficient capacity and in
sufficient numbers to enable transmission and reception of the
messages by means of applicable systems; and (c) to connect
H
494 SUPREME COURT REPORTS [2018] 14 S.C.R.

A and keep connected to the applicable systems. By virtue of the
licence, the licensee is obligated to ensure quality of service as
prescribed by the licensor or TRAI and failure on their part to
adhere to the quality of service stipulated by TRAI would make
the licensor liable to be treated for breach of the terms and
conditions of the licence. In order to render effective services,
B
it is mandatory for the licensee to interconnect/provide POIs to
all eligible telecom service providers to ensure that calls are
completed to all destinations and interconnection agreement is
entered into between the different service providers which
mandates each of the party to the agreement to provide to the
C other interconnection traffic carriage and all the technical and
operational quality service and time lines, i.e. the equivalent to
that which the party provides to itself. [Para 74][567-A-C, F-H;
568-A-B]
3.1 With the advent of globalisation/liberalisation leading
D to free market economy, regulators in respect of each sector have
assumed great significance and importance. It becomes their
bounden duty to ensure that such a regulator fulfils the objectives
enshrined in the Act under which a particular regulator is created.
Insofar as the telecom sector is concerned, the TRAI Act itself
mentions the objective which it seeks to achieve. It not only
E exercises control/supervision over the telecom service providers/
licensees, TRAI is also supposed to provide guidance to the
telecom/mobile market. ‘Introduction’ to the TRAI Act itself
mentions that due to tremendous growth in the services it was
considered essential to regulate the telecommunication services
F by a regulatory body which should be fully empowered to control
the services, in the best interest of the country as well as the
service providers. TRAI is, thus, constituted for orderly and
healthy growth of telecommunication infrastructure apart from
protection of consumer interest. It is assigned the duty to achieve
the universal service which should be of world standard quality
G on the one hand and also to ensure that it is provided to the
customers at a reasonable price, on the other hand. In the
process, purpose is to make arrangements for protection and
promotion of consumer interest and ensure fair competition.
[Paras 78, 79][570-B-D; 571-E]
H
COMPETITION COMMISSION OF INDIA v. BHARTI AIRTEL 495
LIMITED AND ORS.

Modern Dental College and Research Centre and Others A
v. State of Madhya Pradesh and Others (2016) 7 SCC
353 – followed
3.2 Specific functions which are assigned to TRAI, amongst
other, include ensuring technical compatibility and effective inter-
relationship between different service providers; ensuring B
compliance of licence conditions by all service providers; and
settlement of disputes between service providers. In the instant
case, dispute raised by RJIL specifically touches upon these
aspects as the grievance raised is that the IDOs have not given
POIs as per the licence conditions resulting into non-compliance
and have failed to ensure inter se technical compatibility thereby. C
Not only RJIL raised this dispute, it even specifically approached
TRAI for settlement of this dispute which arose between
various service providers, namely, RJIL on the one hand
and the IDOs on the other, wherein COAI is also roped in.
[Paras 79, 80][571-F-H; 572-A] D
3.3 As the TRAI is constituted as an expert regulatory
body which specifically governs the telecom sector, the said
aspects of the disputes are to be decided by the TRAI in the first
instance. These are jurisdictional aspects. Unless the TRAI
finds fault with the IDOs on the said aspects, the matter cannot E
be taken further even if it is assumed that the CCI has the
jurisdiction to deal with the complaints/information filed before
it. RJIL has approached the DoT in relation to its alleged
grievance of augmentation of POIs which in turn had informed
RJIL that the matter related to inter-connectivity between service
providers is within the purview of TRAI. RJIL thereafter F
approached TRAI; TRAI intervened and issued show-cause
notice and post issuance of show-cause notice and directions,
TRAI issued recommendations on the issue of inter-connection
and provisioning of POIs to RJIL. The sectoral authorities are,
therefore, seized of the matter. TRAI, being a specialised sectoral G
regulator and also armed with sufficient power to ensure fair, non-
discriminatory and competitive market in the telecom sector, is
better suited to decide the said issues. After all, RJIL’s grievance
is that inter-connectivity is not provided by the IDOs in terms of
the licenses granted to them. TRAI Act and Regulations framed
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496 SUPREME COURT REPORTS [2018] 14 S.C.R.

A thereunder make detailed provisions dealing with intense
obligations of the service providers for providing POIS. These
provisions also deal as to when, how and in what manner POIs
are to be provisioned. They also stipulate the charges to be
realised for POIs that are to be provided to another service
provider. Even the consequences for breach of such obligations
B
are mentioned. [Para 83][573-F-H; 574-A-C]
4. The High Court was right in concluding that till the
jurisdictional issues were straightened and answered by the TRAI
which would bring on record findings on the said aspects, the
CCI is ill-equipped to proceed in the matter. Having regard to
C the said nature of jurisdiction conferred upon an expert regulator
pertaining to this specific sector, the High Court is right in
concluding that the concepts of “subscriber”, “test period”,
“reasonable demand”, “test phase and commercial phase rights
and obligations”, “reciprocal obligations of service providers”
D or “breaches of any contract and/or practice”, arising out of TRAI
Act and the policy so declared, are the matters within the
jurisdiction of the Authority/TDSAT under the TRAI Act only.
Only when the jurisdictional facts in the instant matter are
determined by the TRAI against the IDOs, the next question
would be whether it was a result of any concerted agreement
E between the IDOs and COAI supported the IDOs in that
endeavour. It would be at that stage the CCI can go into the
question as to whether violation of the provisions of TRAI Act
amounts to ‘abuse of dominance’ or ‘anti-competitive
agreements’. [Para 84][574-D-F]
F 5. Whether TRAI has the exclusive jurisdiction to deal
with matters involving anti-competitive practices to the exclusion
of CCI altogether because of the reason that the matter pertains
to telecom sector?
5.1 The CCI is to determine whether the conduct of the
G parties was unilateral or it was a collective action based on an
agreement. Agreement between the parties, if it was there, is
pivotal to the issue. Such an exercise has to be necessarily
undertaken by the CCI. The Competition Act is also a special
statute which deals with anti-competition. If the activity
H undertaken by some persons is anti-competitive and offends
COMPETITION COMMISSION OF INDIA v. BHARTI AIRTEL 497
LIMITED AND ORS.

Section 3 of the Competition Act, the consequences thereof are A
provided in the Competition Act. Section 27 empowers the CCI
to pass certain kinds of orders, stipulated in the said provision,
after inquiry into the agreements for abuse of dominant position.
Moreover, it is within the exclusive domain of the CCI to find
out as to whether a particular agreement will have appreciable
B
adverse effect on competition within the relevant market in India.
For this purpose, CCI is to take into consideration the provisions
contained in the Competition Act, including Section 29 thereof.
Sections 45 and 46 also authorise the CCI to impose penalties in
certain situations. Obviously, all these functions not only come
within the domain of the CCI, TRAI is not at all equipped to deal C
with the same. Even if TRAI also returns a finding that a particular
activity was anti-competitive, its powers would be limited to the
action that can be taken under the TRAI Act alone. It is only the
CCI which is empowered to deal with the same anti-competitive
act from the lens of the Competition Act. If such activities offend
D
the provisions of the Competition Act as well, the consequences
under that Act would also follow. Therefore, contention of the
IDOs that the jurisdiction of the CCI stands totally ousted cannot
be accepted. Insofar as the nuanced exercise from the stand
point of Competition Act is concerned, the CCI is the experienced
body in conducting competition analysis. Further, the CCI is E
more likely to opt for structural remedies which would lead the
sector to evolve a point where sufficient new entry is induced
thereby promoting genuine competition. This specific and
important role assigned to the CCI cannot be completely wished
away and the ‘comity’ between the sectoral regulator (i.e. TRAI)
F
and the market regulator (i.e. the CCI) is to be maintained.
[Paras 89, 90][576-C-G; 578-B-F]
Haridas Exports v. All India Float Glass Manufacturers’
Assn. & Ors. (2002) 6 SCC 600 : [2002] 1 Suppl. SCR
229 – relied on
G
5.2 The primacy has to be given to the respective
objectives of the two regulators under the two Acts. At the same
time, since the matter pertains to the telecom sector which is
specifically regulated by the TRAI Act, balance is maintained by
permitting TRAI in the first instance to deal with and decide the
H
498 SUPREME COURT REPORTS [2018] 14 S.C.R.

A jurisdictional aspects which can be more competently handled by
it. Once that exercise is done and there are findings returned by
the TRAI which lead to the prima facie conclusion that the IDOs
have indulged in anti-competitive practices, the CCI can be
activated to investigate the matter going by the criteria laid down
in the relevant provisions of the Competition Act and take it to
B
its logical conclusion. The CCI could not have dealt with this
matter at this stage itself without availing the inquiry by TRAI.
Also, insofar as the telecom sector is concerned, jurisdiction of
the CCI under the Competition Act is not totally ousted.
[Paras 91, 92][578-G-H; 579-A-B]
C 6. Whether the writ petitions filed before the High Court
of Bombay were maintainable?
In the case of Steel Authority of India Limited, nature of the
order passed by the CCI under Section 26(1) of the Competition
Act was gone into. The Court, in no uncertain terms, held that
D such an order would be an administrative order and not a quasi-
judicial order. The case set up by the respondents was that the
CCI did not have the jurisdiction to entertain any such request
or information which was furnished by RJIL and two others. The
question, thus, pertained to the jurisdiction of the CCI to deal
E with such a matter and in the process the High Court was called
upon to decide as to whether the jurisdiction of the CCI is entirely
excluded or to what extent the CCI can exercise its jurisdiction
in these cases when the matter could be dealt with by another
regulator, namely, the TRAI. When such jurisdictional issues
arise, the writ petition would clearly be maintainable. Thus,
F although the view of the High Court that the impugned order
was quasi-judicial order is not accepted, the High Court was
competent to deal with and decide the issues raised in
exercise of its power under Article 226 of the Constitution.
The writ petitions were, therefore, maintainable.
G [Paras 94, 96, 97][580-C-D; 582-B-C; 583-F]
7. Whether the High Court could give its findings on
merits?

H
COMPETITION COMMISSION OF INDIA v. BHARTI AIRTEL 499
LIMITED AND ORS.

Once it is held that the order under Section 26(1) of the A
Competition Act is administrative in nature and further that it
was merely a prima facie opinion directing the Director General
to carry the investigation, the High Court was not competent to
adjudge the validity of such an order on merits. At the same time,
since it is held that the order of the High Court on the aspect
B
that the CCI could exercise jurisdiction only after proceedings
under the TRAI Act had concluded/attained finality, i.e. only after
the TRAI returns its findings on the jurisdictional, the ultimate
direction given by the High Court quashing the order passed by
the CCI is not liable to be interfered with as such an exercise
carried out by the CCI was premature. [Paras 98, 99][583-G-H; C
584-A-B]
Barium Chemicals Ltd. and Another v. Company Law
Board and Others AIR 1967 SC 295 : [1966] SCR 311
– relied on
State (NCT of Delhi) v. Sanjay (2014) 9 SCC 772 : D
[2014] 9 SCR 1063 ; Solidaire India Ltd. v. Fairgrowth
Financial Services Ltd. & Ors. (2001) 3 SCC 71 : [2001]
1 SCR 932 ; Union of India and Another v. Association
of Unified Telecom Service Providers of India and
Others (2011) 10 SCC 543 : [2011] 14 SCR 657 ; E
Competition Commission of India v. Steel Authority of
India Limited and Another (2010) 10 SCC 744 : [2010]
11 SCR 112 ; Competition Commission of India v.
Coordination Committee of Artistes and Technicians of
West Bengal Film and Television & Ors. (2017) 5 SCC
17 : [2017] 5 SCR 1 ; Begum Sabiha Sultan v. Nawab F
Mohd. Mansur Ali Khan & Ors. (2007) 4 SCC 343 :
[2007] 5 SCR 36 ; State of Punjab v. Labour Court,
Jullundur & Ors. (1980) 1 SCC 4 : [1980] 1 SCR
953 ; Ashoka Marketing Ltd. & Anr. v. Punjab National
Bank & Ors. (1990) 4 SCC 406 : [1990] 3 SCR 649 ; G
Bhavnagar University v. Palitana Sugar Mill (P) Ltd.
& Ors. (2003) 2 SCC 111 : [2010] 11 SCR 112 ;
Competition Commission of India v. Steel Authority of
India Ltd. & Anr. (2010) 10 SCC 744 : [2007] 10 SCR
656 ; Carona Ltd. v. Parvathy Swaminathan & Sons
(2007) 8 SCC 559 : [2007] 10 SCR 656 – referred to H
500 SUPREME COURT REPORTS [2018] 14 S.C.R.

A Deutsche Telekom v. European Commission Case
C-280/08 P, Judgment dated 14.10.2010 ; FTC v.
Supreme Court Trial Lawyers Association 493 US 411
(1990) ; Credit Suisse v. Billing et al 551 US 264 (2007)
– referred to
B Case Law Reference
[2002] 1 Suppl. SCR 229 referred to Para 26
[2014] 9 SCR 1063 referred to Para 29
[2001] 1 SCR 932 referred to Para 30
C [2011] 14 SCR 657 referred to Para 33
[2010] 11 SCR 112 referred to Para 37
[2017] 5 SCR 1 referred to Para 44
[2007] 5 SCR 36 referred to Para 51
D [1980] 1 SCR 953 referred to Para 52
[1990] 3 SCR 649 referred to Para 54
[2010] 11 SCR 112 referred to Para 57
[2007] 10 SCR 656 referred to Para 58
E
[2007] 10 SCR 656 referred to Para 58
[2017] 5 SCR 901 referred to Para 67
(2016) 7 SCC 353 referred to Para 77
[1966] SCR 311 relied on Para 96
F
CIVIL APPELLATE JURISDICTION : Civil Appeal No. 11843
of 2018.
From the Judgment and Order dated 21.09.2017 of the High Court
of Judicature at Bombay in WP No. 7173 of 2017.
G With
Civil Appeal Nos. 11846, 11844-45, 11852 and 11847-51 of 2018.
P. S. Narasimha, ASG, Prashanto Sen, Dr. Abhishek Manu Singhvi,
Ramji Srinivasan, Amit Sibal, Darius J. Khambata, Soli K. Cooper,
P. Chidambaram, Gopal Jain, Navroz Seervai, Siddharth Luthra, Sr. Advs.
H
COMPETITION COMMISSION OF INDIA v. BHARTI AIRTEL 501
LIMITED AND ORS.

Arjun Krishnan, Dhruv Malik, V. C. Shukla, Ankur Suingh, A
Sumit Srivastava, Sarvesh Mishra, Udayan Verma, Kamlendra,
Rahul Tanwani, K. R. Sadiprabhu, Ritin Rai, Raghav Shankar, Hiten
Sampat, Vishnu Sharma, Nakul Nayak, Aabhas Kshetarpal, Ms. Kritika
Bharadwaj, Tushar Bhardwaj, Avishkar Singhvi, Nidhiram Sharma, Srijan
Sinha, Naveen Hegde, Jayant Malik, Amit Bhandari, Avinash Amarnath,
B
Marezban P. Bharucha, Ms. Alka Bharucha, Ms. Swathi Girimaji, Areen
De, Vipul Wadhwa, Harsh Kaushik, Atul Dua, Ms. Chinmayee Chandra,
Ankush Walia, Param Tandon, Anju Berry, Aashish Gupta,
Aditya Mukherjee, Ms. Sugnadha Rohatgi, S. S. Shroff, Sanjay Kapur,
Ms. Megha Karnwal, Ms. Mansi Kapur and Ms. Shubhra Kapur, Advs.
for the appearing parties. C
The Judgment of the Court was delivered by
A. K. SIKRI, J. 1. Leave granted.
2. Reliance Jio Infocomm Limited (hereinafter referred to as
‘RJIL’) has filed information under Section 19(1) of the Competition D
Act, 2002 (hereinafter referred to as the ‘Competition Act’) before the
Competition Commission of India (for short, ‘CCI’) alleging anti-
competitive agreement/cartel having been formed by three major telecom
operators, namely, Bharti Airtel Limited, Vodafone India Limited and
Idea Cellular Limited (Incumbent Dominant Operators) (hereinafter
referred to as the ‘IDOs’). Similar Informations under Section 19 of the E
Competition Act were also filed by one Mr. Ranjan Sardana, Chartered
Accountant, and Mr. Justice Kantilal Ambalal Puj (Retd.). These were
registered by the CCI as Case Nos. 80-81, 83 and 95 respectively. As
per Section 26 of the Competition Act, on receipt of such an information,
the CCI has to form an opinion as to whether there exists a prima facie F
case or not. If it is of the opinion that there exists a prima facie case,
the CCI directs the Director General to cause an investigation to be
made into the matter. Apart from the IDOs, certain allegations were
also made against the Cellular Operators Association of India (for short,
‘COAI’). The CCI issued notice to these parties and after hearing the
RJIL, the aforesaid cellular companies and COAI, it passed a common G
order dated April 21, 2017 in all these cases (by clubbing them together)
holding a view that prima facie case exists and an investigation is
warranted into the matter. It, accordingly, directed the Director General
to cause investigation in the case.
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A Introduction:
3. Four writ petitions came to be filed by the Bharti Airtel Limited,
Vodafone India Limited, Idea Cellular Limited and COAI respectively.
The prayed for quashing of the aforesaid order and consequential action/
proceedings on the ground that the CCI did not have any jurisdiction to
B deal with such a matter. Show-cause notices were issued pursuant to
which the CCI as well as RJIL filed their counter affidavits. The mater
was heard and vide judgment dated September 21, 2017 the High Court
has allowed these writ petitions and quashed/set aside the order dated
April 21, 2017 passed by the CCI and consequently notices issued by
the Director General of the CCI have also been quashed. We may
C reproduce the conclusions and operative portion of the order passed by
the Bombay High Court here itself, which are as under:
“130. Conclusions:
a) All the Writ Petitions are maintainable and entertainable. This
D Court has territorial jurisdiction to deal and decide the challenges
so raised against impugned order (majority decision) dated 21 April
2017, passed by the Competition Commission of India (CCI) under
the provisions of Section 26(1) of the Competition Act, 2002 in
case Nos. 81 of 2016, 83 of 2016 and 95 of 2016 and all the
consequential actions/notices of the Director General under Section
E 41 of the Competition Act arising out of it.
b) The telecommunication Sector/Industry/Market is governed,
regulated, controlled and developed by the Authorities under the
Telegraph Act, the Telecom Regulatory Authority of India Act
(TRAI Act) and related Regulations, Rules, Circulars, including
F all government policies. All the “parties”, “persons”,
“stakeholders”, “service providers”, “consumers” and “enterprise”
are bound by the statutory agreements/contracts, apart from related
policy, usage, custom, practice so announced by the Government/
Authority, from time to time.
G c) The question of interpretation of clarification of any “contract
clauses”, “unified license”, “interconnection agreements”, “quality
of service regulations”, “rights and obligations of TSP between
and related to the above provisions”, are to be settled by the
Authorities/TDSAT and not by the Authorities under the
Competition Act.
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d) The concepts of “subscriber”, “test period”, “reasonable A
demand”, “test phase and commercial phase rights and obligations”,
“reciprocal obligations of service providers” or “breaches of any
contract and/or practice”, arising out of TRAI Act and the policy
so declared, are the matters within the jurisdiction of the Authority/
TDSAT under the TRAI Act only.
B
e) The Competition Act and the TRAI Act are independent
statutes. The statutory authorities under the respective Acts are
to discharge their power and jurisdiction in the light of the object,
for which they are established. There is no conflict of the
jurisdiction to be exercised by them. But the Competition Act
itself is not sufficient to decide and deal with the issues, arising C
out of the provisions of the TRAI Act and the contract conditions,
under the Regulations.
f) The Competition Act governs the anti-competitive agreements
and its effect – the issues about “abuse of dominant position and
combinations”. It cannot be used and utilized to interpret the D
contract conditions/policies of telecom Sector/Industry/Market,
arising out of the Telegraph Act and the TRAI Act.
g) The Authority under the Competition Act has no jurisdiction to
decide and deal with the various statutory agreements, contracts,
including the rival rights/obligations, of its own. Every aspects of E
development of telecommunication market are to be regulated
and controlled by the concerned Department/ Government, based
upon the policy so declared from time to time, keeping in mind the
need and the technology, under the TRAI Act.
h) Impugned order dated 21 April 2017 passed by the Competition F
Commission of India (CCI) under the provisions of Section 26(1)
of the Competition Act, 2002 and all the consequential actions/
notices of the Director General under Section 41 of the Competition
Act proceeded on wrong presumption of law and usurpation of
jurisdiction, unless the contract agreements, terms and clauses G
and/or the related issues are settled by the Authority under the
TRAI Act, there is no question to initiating any proceedings under
the Competition Act as contracts/agreements go to the root of the
alleged controversy, even under the Competition Act.

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A i) The Authority, like the Commission and/or Director General,
has no power to deal and decide the stated breaches including of
“delay, “denial”, and “congestion” of POIs unless settled finally
by the Authorities/TDSAT under the TRAI Act. Therefore, there
is no question to initiate any inquiry and investigations under Section
26(1) of the Competition Act. It is without jurisdiction. Even at
B
the time of passing of final order, the Commission and the Authority,
will not be in a position to deal with the contractual terms and
conditions and/or any breaches, if any. The uncleared and vague
information are not sufficient to initiate inquiry and/or investigation
under the Competition Act, unless the governing law and the policy
C of the concerned “market” has clearly defined the respective rights
and obligations of the concerned parties/persons.
j) Impugned order dated 21 April 2017 and all the consequential
actions/notices of the Director General under the Competition Act,
therefore, in the present facts and circumstances, are not mere
D “administrative directions”.
k) Impugned order dated 21 April 2017 and all the consequential
actions/notices of the Director General under the Competition Act
are, therefore, illegal, perverse and also in view of the fact that it
takes into consideration irrelevant material and ignores the relevant
E material and the law.
l) Every majority decision cannot be termed as “cartelisation”.
Even ex-facie service providers and its Association COAI have
not committed any breaches of any provisions of the Competition
Act.
F 131. Hence the following
ORDER
a) Impugned order dated 21 April 2017, passed by the Competition
Commission of India (CCI) under the provisions of Section 26(1)
of the Competition Act, 2002 in case Nos. 81 of 2016, 83 of 2016
G
and 95 of 2016 and all the consequential actions/notices of the
Director General under Section 41 of the Competition Act, are
liable to be quashed and set aside, in exercise of power under
Article 226 of the Constitution of India. Order accordingly.
b) All the Writ Petitions are allowed.
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c) There shall be no order as to costs. A
d) In view of the above, nothing survives in Civil Application
(Stamp) No. 17736 of 2017 in Writ Petition No. 7164 of 2017 and
the same is also disposed of. No costs.”
4. Gist of the aforesaid order, as per the High Court, is that insofar
as the telecom sector/industry/market is concerned, same is governed, B
regulated, controlled and developed by the authorities under the India
Telegraph Act, 1885 (hereinafter referred to as the ‘Telegraph Act’),
the Telecom Regulatory Authority of India Act, 1997 (for short, ‘TRAI
Act’), and as well as the related Regulations, Rules, Circulars, etc.
Therefore, the question of interpretation or clarification of any “contract C
clauses”, “unified license”, “interconnection agreements”, “quality of
service regulations”, “rights and obligations of TSP between and related
to the above provisions”, are to be settled by the Authorities/Telecom
Disputes Settlement and Appellate Tribunal (TDSAT) and not by the
Authorities under the Act. It has also held that the Competition Act and
the TRAI Act are independent statutes and the statutory authorities under D
the respective Acts are to discharge their power and jurisdiction in the
light of the objectives for which they are established. The Competition
Act is itself not sufficient to decide and deal with the issues arising out
of the provisions of the TRAI Act etc. Thus, the CCI has no jurisdiction
to decide and deal with the various statutory agreements, contracts, E
including rival rights/obligations, of its own. The issues arising out of
contract agreements, terms and clauses and/or the related issues are to
be settled by the authority under the TRAI Act in the first instance and
unless these issues are decided, there is no question of initiating any
proceedings under the Act. In a nutshell, it is held that insofar as contracts,
etc. which are regulated by the TRAI Act are concerned, in the first F
instance, it is the authority under the TRAI Act which has to decide
these questions. Once there is a determination of the respective rights
and obligations under these licenses by the authority under the TRAI
Act, which provided an information to the effect that the particular act
appears to be anti-competitive, only thereafter the CCI gets jurisdiction G
to go into the question of such anti-competitive practice. Primarily the
message behind the decision of the High Court is that jurisdictional facts
are to be decided by the authorities under the TRAI Act which has the
exclusive jurisdiction to determine those issues as the TRAI is the
statutory authority established for this very purpose, and unless there is
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A a determination of these facts, the machinery under the Competition Act
cannot be invoked. To put it otherwise, the judgment proceeds to decide
that it was premature for the CCI to entertain the Information for want
of determination of such issues that fall within the domain of the TRAI
Act.
B 5. It is obvious that the RJIL is not happy with the aforesaid
outcome. Even the CCI feels aggrieved. CCI has impugned this decision
by filing four special leave petitions, while the other one has been filed
by the RJIL.
6. The material facts which are absolutely essential to determine
C the controversy, eschewing the unnecessary details, may now be
recapitulated.
Factual Background:
With the decision of the Government of India, more than 25 years
ago, ushering into era of globalisation and liberalisation, lot of avenues
D opened up. It led to the privatisation of business in many sectors which
were, hitherto, monopolistic domain of the Government. These included
aviation, insurance, telecommunication etc. With the opening of the
industrial and other activities in all spheres by placing it in the hands of
private sector led to a significant economic development. The absolute
E control of the Government through public enterprise or otherwise, which
had seen licence and quota raj, virtually withered away, thereby reverting
back to laissez faire economy to a great extent, though not completely.
It led to two significant developments:
In the first instance, though the private sector was given full
F freedom to do the business without any shackles in the form of controls
etc., it was also deemed necessary at the same time that in public interest,
some of the aspects of the business need to be regulated, of course, not
by the Government but by an independent regulatory authority. This
necessity prompted the Government to come out with regulatory regime
in different sectors. For example, in insurance sector, we have regulatory
G authority constituted under Insurance Regulatory and Development
Authority Act, 1999; for industries generating electricity, there is an
electricity regulatory authority constituted under the Electricity Act, 2003;
and for telecom sector, with which we are concerned, the TRAI is
constituted under the provisions of TRAI Act.
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COMPETITION COMMISSION OF INDIA v. BHARTI AIRTEL 507
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Secondly, this requirement to do business thereby allowing free A
entry to private enterprise led to competition between different players
in the private sector. Competition is perceived as a phenomena which is
in best public interest in so many ways. Therefore, it becomes necessary
to encourage competition. At the same time, tendency of the business
enterprises to adopt practices which retard healthy competition needed
B
to be curbed. There was a governing law in the field known as
Monopolistic and Restrictive Trade Practice Act, 1969. However, it
was felt that a new robust statutory regime is required to take care of
the needs of the present day. This necessity prompted the Parliament to
come out with a new Act on the subject and the Competition Act, 2002
was passed by the Parliament. Under this Act, the CCI is constituted as C
a statutory body which is to ensure healthy competition in markets thereby
preventing the practice of having adverse effect on competition; to
promote and sustain the competition in markets; to protect the interest
of consumers and to ensure freedom of trade. In that sense, the CCI is
also a regulator. But a unique feature of the CCI is that it is not sector
D
based body but has the jurisdiction across which transcends sectoral
boundaries, thereby covering all the industries, with focus on the aforesaid
object and purpose behind the Competition Act, 2002.
7. In the instant appeals, width and scope of the powers of the
CCI under the Competition Act, 2002 pertaining to telecom sector i.e. in
respect of the companies in telecom industry providing telecom services E
is to be defined vis-a-vis the scope of the powers of TRAI under the
TRAI Act, 1997. It has arisen in these appeals, in the following
background:
As mentioned above, TRAI is the regulatory which regulates the
functioning of the telecom service provider i.e. the telecom sector. Section F
11 of the TRAI Act enumerates various functions which TRAI is
supposed to perform under the Act. Section 13, likewise, empowers the
TRAI to issue directions, from time to time, to the service provider. In
exercise of powers under Section 13 read with Section 11 of the TRAI
Act, the TRAI issued directions dated June 07, 2005 to all the telecom G
service providers to provide interconnection within ninety days of the
applicable payments made by the interconnection seeker. The purpose
behind providing interconnection by one service provider to the other
service provider is to ensure smooth communication by a subscriber of
one service provider to the cell number which is provided by another
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A service provider. In that sense, this direction facilitates smooth functioning
of the cell phone network even when it is managed by different
companies as it ensures interconnectivity i.e. connectivity from one
service provider to other service provider.
8. On October 21, 2013, RJIL was granted Unified License and
B Unified Access Service License under Section 4 of the Telegraph Act
by the Department of Telecom (DoT) for providing telecommunication
services in all 22 circles/licensed service areas in India. Soon thereafter,
RJIL executed interconnection agreements (ICA) with existing telecom
operators inter alia including, Bharti Airtel Limited and Bharti Hexagon
Limited (hereinafter collectively referred to as the ‘Airtel’), Idea Cellular
C Limited (hereinafter referred to as the ‘Idea’); Vodafone India Limited/
Vodafone Mobile Services Limited (hereinafter collectively referred to
as the ‘Vodafone’). RJIL commenced test trial of its services after
intimation and approval of the DoT and TRAI.
9. By its ‘firm demand’ letter of June 21, 2016, RJIL vide separate
D letters requested IDOs to augment Point of Interconnection (POIs) for
access, National Long Distance (NLD) and International Long Distance
(ILD) services, as according to it, the capacity already provided to it
was causing huge POI congestion, resulting in call failures on its network.
According to RJIL, these companies intentionally ignored the aforesaid
E request. Accordingly, RJIL sent a letter dated July 14, 2016 to TRAI
stating that the POIs provided by IDOs are substantially inadequate and
leading to congestion/call failures on its network in all circles. Hence,
TRAI was requested to intervene and direct these telecom operators to
augment the POI capacities as per the demands made by RJIL. TRAI
vide separate letters dated July 19, 2014 requested inter alia the
F aforementioned telecom operators to augment POIs as per the RJIL’s
request. Further, responses of the respective companies were also sought
on the issues raised by RJIL, within seven days. Idea responded by
sending letter dated July 26, 2016 to RJIL denying that there had been
any delay in augmentation of POIs and further stated that it is willing to
G fully support RJIL and that it had instructed its circle teams to augment
the POIs on the basis of traffic congestion as per the ICA. Likewise,
Airtel also sent reply dated August 03, 2016 to TRAI, inter alia stating
that augmentation of POIs shall be undertaken as per the terms and
conditions of the ICA and on the basis of traffic trends post their
commercial launch. RJIL was not satisfied with such responses. It sent
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COMPETITION COMMISSION OF INDIA v. BHARTI AIRTEL 509
LIMITED AND ORS. [A. K. SIKRI, J.]

another letter dated August 04, 2016 to TRAI reiterating its earlier request A
for augmentation of POIs by the subject telecom operators. In the
meantime, even Cellular Operators Association of India (COAI)
intervened by addressing communication dated August 08, 2016 to TRAI
wherein it took a stand by stating that the RJIL was providing free service
to millions of users under the guise of testing which led to choking of
B
POIs. It was further suggested that due to the free service provided by
RJIL, a substantial imbalance in voice traffic had occurred for which
the existing operators were not adequately compensated under the
Interconnection Usage Charges regulations (IUC) in place.
10. There was further exchange of correspondence between the
parties and even by the parties to the TRAI which shows that the parties C
stuck to their respective positions and it may not be necessary to refer to
those communications in detail. Suffice it is to mention that RJIL fixed
September 05, 2016 as the launch date, which fact was informed to
other service providers as well who were also told that the subscriber
base was expected to substantially and swiftly increase resulting in even D
more POI congestion. On that basis, request was made for urgent POI
augmentation vide letter dated September 02, 2016. The TRAI even
facilitated a meeting between the representatives of RJIL and other
service providers (respondents herein) to sort out and resolve the
differences in the interest of the consumers. At the same time, in the
said meeting, the three telecom operators (respondents herein) also raised E
a grievance that free calls being provided by RJIL has resulted in an
unprecedented traffic congestion on their respective networks and the
current IUC regime is inadequate to cover the cost of efficiently
maintaining such high traffic. Thereafter, vide letter dated September
14, 2016, addressed by Airtel to RJIL, it stated that the POIs (also known F
as E1s) would be converted into 50:50 ratio to outgoing and incoming
E1s. In other words, the E1s provided would be converted to ‘only
outgoing’ or ‘only incoming’ i.e. one-way E1s. RJIL replied by stating
that it was acceptable to them.
11. Soon thereafter, i.e. in September 2016 itself, Mr. Rajan Sardana, G
a Chartered Accountant, filed information under Section 19 of the
Competition Act (registered as Case No. 81 of 2016) and similar
application was filed by Justice K.A. Puj (retired) (registered as Case
No. 83 of 2016). Then, it was followed by information under Section 19
of the Competition Act by RJIL in November, 2016 (registered as Case
No. 95 of 2016). H
510 SUPREME COURT REPORTS [2018] 14 S.C.R.

A Proceedings before TRAI:
12. As the matter was with the TRAI as well, it issued show
cause notices dated September 27, 2016 to IDOs and RJIL for violation
of Standard of Quality of Service of Basic Telephone Service (Wireline)
and Cellular Mobile Telephone Service Regulations, 2009 (hereinafter
B referred to as the ‘QoS’) and for provision of the License Agreements.
Similar show cause notices were also sent to other telecom operators.
On October 21, 2016, TRAI issued recommendations to DoT after finding
that IDOs have violated conditions under the QoS, interconnection
agreements and Unified License. The TRAI inter alia stated in its
recommendation as under:
C
“21. … (vii) It is evident from the above clauses that the licensees
are mandated to provide interconnection to all eligible telecom
service provider. However, as mentioned in para 6 above, Airtel
along with other service providers have jointly through their
association (COAI), declined Point of Interconnection to RJIL
D which is willful violation of the above mentioned license conditions.
...(x) COAI’s letter dated 2nd September, 2016 which was
confirmed by Airtel in the meeting held on 9th September, 2016
clearly indicates attempt by three service providers namely, Airtel,
Vodafone India Limited and Idea Cellular Limited to stifle
E competition in the market and willfully violate the license
conditions;…
23. While the Authority has been taking necessary steps to ensure
effective interconnection between Airtel and RJIL, it is evident
from Para 21 that Airtel is in non-compliance of the terms and
F conditions of license and denial of interconnection to RJIL appears
to be with ulterior motive to stifle competition and is anti-
consumer.”
13. TRAI recommended that Rs. 50 crore per local service area
(LSA) be imposed on all the above three telecom operators for failure to
G adhere to TRAI norms and regulations. Similar recommendations were
also issued to DoT against other telecom operators. Against the
recommendations dated October 21, 2016 of TRAI, Vodafone filed a
Writ Petition being Writ Petition (C) No. 11740 of 2016 before the High
Court at Delhi. Meanwhile, on January 17, 2017, TRAI also recommended
imposition of penalty of Rs. 1,90,000/- on Idea for its rejection of mobile
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number portability (MNP) requests to RJIL’s network. Against the A
aforesaid recommendation, Idea has preferred a Writ Petition being Writ
Petition (C) No. 685 of 2017 before the High Court at Delhi. The DoT
after examining the matter referred it back to TRAI for fresh consideration
vide DoT’s reference dated April 05, 2017 whereby its recommendations
imposing penalty upon IDOs were sent back for reconsideration. The
B
TRAI sent its response dated May 24, 2017 to the DoT, wherein it took
a categorical stand that telecom operators have intentionally denied and
delayed the augmentation of POIs to RJIL.
Proceedings before CCI:
14. The CCI took the cognizance of the three informations given C
to it under Section 19 of the Competition Act which were registered as
Case Nos. 81, 83 and 95 of 2016. It gave hearing to the respondents
service providers as well as COAI and passed order dated April 21,
2017 under Section 26(1) of the Competition Act as per which it came to
a prima facie conclusion that case for investigation was made out and
directed the Director General to cause investigation in the case. This D
order was passed by majority of 3:2 as two members of CCI dissented
from the said order. Operative portion of the majority order holds as
under:
“23. The Commission notes that allegations of anti-competitive
agreement as well as abuse of dominant position have been made E
for the same conduct of refusal to facilitate call termination services
and denial of mobile number portability. As discussed earlier, the
Commission is satisfied that there exist a prima facie contravention
of Section 3(3)(b) of Act, as the ITOs appear to have entered into
an agreement amongst themselves through the platform of COAI, F
to deny POIs to RJIL. Having been prima facie convinced that
the impugned conduct is an outcome of the anti-competitive
agreement amongst ITOs, Commission does not find it appropriate
to consider the same impugned conduct as unilateral action by
each of the ITOs. The Commission therefore at this stage does
not find it necessary to deal with the allegations and submissions G
regarding abuse of dominance in contravention of the provisions
of Section 4 of Act.
24. In view of the foregoing, the Commission directs the DG to
cause an investigation into the matter under the provisions of
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512 SUPREME COURT REPORTS [2018] 14 S.C.R.

A Section 26(1) of the Act. Considering the substantial similarity of
allegations in all the informations, the Commission clubs them in
terms of the proviso to Section 26(1) of the Act read with
Regulation 27 of the Competition Commission of India (General)
Regulations, 2009. The DO is directed to complete the investigation
and submit investigation report within a period of 60 days from
B
the date of receipt of this Order, if the DG finds contravention, he
shall also investigate the role of the persons who at the time of
such contravention were in-charge of and responsible for the
conduct of the business of the contravening entity/entities. During
the course of investigation, if involvement of any other party is
C found, DG shall investigate the conduct of such other parties also
who may have indulged in the said contravention. In case the DG
finds the conduct of the Opposite Parties in violation of the Act,
the DG shall also investigate the role of the persons who were
responsible for the conduct of the Opposite Parties so as to proceed
against them in accordance with Section 48 of the Act.
D
25. The Commission makes it clear that nothing stated in this
order shall tantamount to final expression of opinion on the merits
of the case and DG shall conduct the investigation without being
swayed in any manner whatsoever by the observations made
herein.”
E
15. Likewise, two members who dissented inter alia held as
follows:
“...As stated above, from the various charts placed on record by
the ITOs showing the number of POIs provided by them to RJIL,
F the respective learned senior counsel for Ops have tried to show
that the number of POIs provided to RJIL by 08.11.2016 i.e. within
the first quarter itself, were much more than what was demanded.
In fact, the charts filed by RJIL itself corroborate this fact. The
charts show that even if some of the POIs provided (one-way
POIs for connecting outgoing calls from ITOs to RJIL) are not
G taken into consideration, the number of POIs provided by OP-5
and OP-7 were much more than what was demanded by RJIL.
Even in case of OP-2, the same were approximately 64% (NLD
POIs) and 85.53% (Access POIs) as on 08.11.2016. However,
as we have already observed above, we are not expected to go
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into the question of providing adequate number of POIs. Yet there A
is ample material on record to show that RJIL was more to be
blamed for congestion in its traffic than the ITOs...”
“...we are of the considered opinion that on the basis of material
available with the Commission, it is difficult to say that there is a
prima facie case...” made out against the Petitioner and others B
and accordingly, “...the instant cases ought to be closed under
Section 26(2) of the Act...” (hereafter “Dissent Note”).”
16. On June 08, 2017, the Director General issued a letter of
investigation to the appellant seeking call data records in respect of certain
identified mobile numbers by June 19, 2017. On June 19, 2017, respondent C
No. 2 issued a letter of investigation to the appellant seeking detailed
information/documents to be furnished by June 30, 2017. Immediately
thereafter, writ petitions were filed challenging the aforesaid order of
the CCI as well as action of the Director General seeking information
for holding inquiry. After preliminary hearing, the High Court passed
interim orders dated June 30, 2017 on the basis of statement of the counsel D
for CCI that they shall not proceed with the investigation, which order
continued till the disposal of the writ petitions. The High Court after
hearing the matter finally allowed the writ petitions, as already mentioned.
17. It is clear from the above that as per RJIL, the respondent
service providers, along with COAI, entered into an anti-competitive E
agreement/formed a cartel and acted in an anti-competitive manner which
is prohibited by the Act. On these allegations, it approached the CCI for
initiating inquiry into this anti-competitive practices. Insofar as the nature
of alleged anti-competitive agreement is concerned, the allegations of
RJIL are the following: F
(i) Delay in provisioning or denial in provisioning of POIs, also
known as ‘E1’ in telecom parlance, to RJIL by IDOs during the testing
phase and after commercial launch of RJIL services. POIs are the
points where the networks of telecom operators connect. Without
sufficient POIs it is not possible for subscribers of one service provider G
to make calls to subscribers of another service provider.
(ii) It was also alleged, inter alia, that IDOs are denying Mobile
Number Portability (MNP) requests of customers who wanted to switch
to RJIL competing service.
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514 SUPREME COURT REPORTS [2018] 14 S.C.R.

A (iii) It was also alleged that COAI was acting at the behest of
IDOs against the interest of a competing member, i.e. RJIL, and not for
the common interest of the industry and consumers as a whole.
Proceedings before the High Court:
18. Against the order passed by the CCI directing investigation
B into the aforesaid allegations, in the writ petitions filed by the IDOs and
also by COAI, challenge laid to the aforesaid order was premised on the
ground that the CCI lacked jurisdiction to entertain such complaints/
information filed under Section 19 of the Competition Act as such a
matter falls within the exclusive jurisdiction of another regulatory authority,
C namely, TRAI.
19. In nutshell, it was pleaded that the violation alleged by RJIL,
namely, whether there was a delay or denial in provisioning POIs, comes
within the domain of TRAI as it is the TRAI which has the exclusive
jurisdiction to deal with such a matter under the TRAI Act and, in fact,
D the complaint was also made by TRAI as well which was seized of the
matter.
20. The plea of the appellants, on the other hand, was that violation
of telecom regulations, etc. was undoubtedly a matter which could be
looked into by the TRAI for which RJIL has approached the TRAI.
E However, the subject matter of inquiry before the CCI was entirely
different, namely, formation of cartel and a concerted effort on the part
of the service providers, in collusion with COAI, to curb the competition
in the market and, thus, the CCI was competent and had requisite
jurisdiction to look into this aspect. To put it otherwise, according to the
appellants, the CCI had decided to examine the facts purely from the
F stand point as to whether the alleged Act constituted anti-competitive
practice on the part of the respondents and, therefore, contravened the
provisions contained in Section 3 or Section 4 of the Act. This aspect,
they had argued, could not be gone into by the TRAI as the CCI was the
only statutory authority constituted under the Act to examine such an
G issue.
21. The Bombay High Court in the impugned judgment has, thus,
inter alia, held as under:
“(i) the Competition Commission of India (CCI) had no jurisdiction
in view of the Telecom Regulatory Authority of India Act, 1997
H and the authorities and regulations made thereunder;
COMPETITION COMMISSION OF INDIA v. BHARTI AIRTEL 515
LIMITED AND ORS. [A. K. SIKRI, J.]

(ii) the CCI could exercise jurisdiction only after proceedings A
under the TRAI Act had concluded/attained finality;
(iii) the order dated 21.04.2017 passed under section 26(1) of the
Competition Act was not an administrative direction, but rather a
quasi judicial one that finally decided the rights of parties and
caused serious adverse consequences, because a detailed hearing B
had been given and many materials had been tendered in the courts
of the hearings;
(iv) on the merits of the matter, there was no cartelisation as
alleged and COAI was exonerated; and
(v) the order of the CCI was perverse and liable to be interfered C
with under writ jurisdiction.”
Arguments: The appellants:
22. Mr. P.S. Narasimha, learned Additional Solicitor General,
appeared on behalf of the CCI and submitted that the impugned judgment D
is contrary to the law. His attack was premised on three principal
propositions, which are follows:
(i) Jurisdiction of the CCI: The CCI has jurisdiction in the present
case and it need not wait till the conclusion of proceedings under the
TRAI Act to conclude.
E
(ii) Scope of Judicial Interference under Article 226: The High
Court erred in holding that the order passed under section 26(1) was an
order resulting in serious adverse consequences merely because the
CCI had granted a hearing.
(iii) The order of CCI was not perverse and the High Court erred F
in giving findings on merits. The High Court erroneously exercised writ
jurisdiction.
23. With respect to the first proposition, his argument was that the
High Court had failed to appreciate that issues before the CCI are
altogether different than the issues before the TRAI and they necessarily G
be treated differently. He argued that the CCI and TRAI operate in
entirely different fields, which is discernible from the Preambles of the
respective legislations. The TRAI Act was supposed to enable it to
regulate the telecommunication services, adjudicate dispute, dispose of
appeals and protect the interests of service providers and consumers of
H
516 SUPREME COURT REPORTS [2018] 14 S.C.R.

A the telecom sector, to promote and ensure orderly growth of the telecom
sector. The CCI, on the other hand, is a body that has been established
to prevent practices having an adverse effect on competition, to promote
and sustain competition in markets, to protect the interests of consumers
and to ensure freedom of trade carried on by other participants in markets,
in India.
B
24. Mr. Narasimha emphasised that the issue before the CCI was
whether the opposite parties/respondents, i.e. the IDOs, were acting in
concert and colluding (forming a cartel) so as to block or hinder the
entry of RJIL in the market in violation of section 3(3)(b) of the Act.
The key issue is whether there was an anti-competitive agreement
C between the IDOs, using the platform of COAI. The issue before the
TRAI, on the other hand, is whether the delay/denial of POIs has violated
terms of the licence agreement and QoS regulations. The learned ASG
pointed out that all the opposite parties have argued that they were justified
in declining POIs to RJIL. However, the question before the CCI is
D whether the conduct of the parties was unilateral or collective action
based on an agreement? It is precisely this issue that requires investigation
by the Director General. If the conduct of the respondents in delaying/
denying POIs was unilateral (i.e. an independent decision made by each
of them), then the conduct cannot be faulted under Section 3 of the Act
since Section 3 is premised on existence of an ‘agreement’ as defined in
E Section 2(b). However, if the conduct of the respondents was based on
an ‘agreement’, it would become illegal under Section 3(3)(b) of the Act
because its intent and effect is to ‘limit or control production, supply,
markets, technical development, investment or provision of services”.
It was contended that the conduct may well be legal under the TRAI
F Act and regulations or other laws. However, it is the collusive/concerted
nature of the action coupled with the effect that makes it illegal under
the Competition Act.
25. He adverted to the order dated April 21, 2017 of the CCI,
while taking its prima facie view and submitted that the CCI has
G recognised the distinction between the issues before the TRAI and the
issues arising under the Act, as follows:
“9. It is observed that telecom sector is regulated by TRAI as the
sectoral regulator. On the allegation of insufficient POIs being
provided to RJIL, the Commission notes from the information
H available on TRAI’s website that, on 21st October 2016, TRAI
COMPETITION COMMISSION OF INDIA v. BHARTI AIRTEL 517
LIMITED AND ORS. [A. K. SIKRI, J.]

had recommended, through three separate communications to the A
Department of Telecommunications, imposition of penalty of Rs.50
crore per License Service Area (LSA) against Airtel, Vodafone
and Idea, for violation of the provisions of License Agreements
and the Standards of QoS of Basic Telephone Service (Wireline)
and Cellular Mobile Telephone Service Regulations, 2009. Thus,
B
TRAI as a sectoral regulator, has held the said conduct of ITOs
in violation of relevant TRAI regulations and recommended penal
action against them. However, the recommendations of TRAI is
in respect of violations of the provisions of License Agreements
and the Standards of QoS of Basic Telephone Service (Wireline)
and Cellular Mobile Telephone Service Regulations, 2009 by these C
OPs. Against this, mandate of the Commission under Section 18
of the Act is ‘...to eliminate practices having adverse effect on
competition, promote and sustain competition, protect the interests
of consumers and ensure freedom of trade carried on by other
participants, in markets in India.’ Accordingly, it becomes the
D
duty and responsibility of the Commission to eliminate practices
in the market that have an adverse effect on competition and
promote and sustain competition so as to protect the interest of
consumers and ensure freedom of trade. Further, as per Section
62 of the Act, provisions of the Act are in addition to and not in
derogation of the provisions of any other law for the time being in E
force. Section 61 of the Act grants exclusive power to the
Commission and the Competition Appellate Tribunal to exercise
its jurisdiction in respect of any matter which the Act empowers
the Commission or the Competition Appellate Tribunal to determine
to the exclusion of civil courts. A careful reading of these
F
provisions show that the Commission has the jurisdiction to inquire
into the issues alleged in the present information insofar as the
same may result in contravention of the provisions of the Act.
10. It may be noted that the primary grievance of the
Informants relates to cartelization by the Opposite Parties,
amounting to violation of the provisions of Section 3 of the G
Act. In this regard, it must be noted that none of the areas
covered under Section 3 of the Act are covered by TRAI in
its mandate as a sector regulator for TSPs. No doubt, TRAI
has the responsibility/obligation to determine whether
Quality of Service regulations and interconnection norms H
518 SUPREME COURT REPORTS [2018] 14 S.C.R.

A on the levels of congestion at the points of interconnection
are complied with it not. But apart from that, none of the
other issues as envisaged under Section 3 of the Act are
looked into by TRAI. Specifically, TRAI cannot arrive at a
determination as to whether the ITOs have colluded and
cartelized to deny POIs to the detriment of RJIL in violation
B
of Section 3(3) read with Section 3(1) of the Act. The scope
of the Section 3 allegation is not whether the ITOs have
breached the terms of their respective License agreement
or ICA, rather, the scope of the Section 3 allegations
pertains to whether the ITOs have entered into an anti-
C competitive agreement to provide insufficient POIs or delay
the provisions of POIs to RJIL. It is within the mandate of
the Commission which can adjudicate on the issue of cartelization
amongst enterprises/associations and arrive at a finding on the
alleged cartelization. The Commission accordingly holds that the
issue of whether such conduct on the part of ITOs (including
D
COAI) has resulted in any anti-competitive effect in the market
in violation of the provisions of the Act can and needs to be
examined by it.
11. The Commission recognizes the role and importance of sectoral
regulators and exercises its jurisdiction keeping in mind their role
E and responsibilities. The Commission is a market regulator
and has the jurisdiction to look at those issues which affect
competition in markets in India, including that of an alleged
cartelization amongst enterprises/ associations. The nature
of the proceedings before TRAI involving ITOs on the
F other hand different and related to whether interconnection
norms and quality of service regulations are complied with
or whether the contractual terms of ICAs have been
breached or met. Palpably, these issues are not relevant
for determination in the current proceedings before the
Commission.
G
12. The informants have alleged that the conduct of ITOs
amounts to a “cartel” in relation to denial of POIs to RJIL.
The definition of cartel has been provided under Section 2(c) of
the Act which reads as follows: ‘cartel includes an association of
producers, sellers, distributors, traders or service providers who
H
COMPETITION COMMISSION OF INDIA v. BHARTI AIRTEL 519
LIMITED AND ORS. [A. K. SIKRI, J.]

by agreement amongst themselves limit, control or attempt to A
control the production, distribution, sale or price of or, trade in
goods or provision of services.’ Further, any alleged agreement
amongst enterprises and an association of enterprises, engaged in
identical or similar trade or provision of services is covered under
Section 3(3) of the act which states that:
B
Any agreement entered into between enterprises or associations
of enterprises or persons or associations of persons or between
any person and enterprise or practice carried on, or decision
taken by, any association of enterprises or association of persons,
including cartels, engaged in identical or similar trade of goods
or provision of services, which- C

(a) directly or indirectly determines purchase or sale prices;
(b) limits or controls production, supply, markets, technical
development, investment or provision of services;
(c) ….. D
(d) …..
shall be presumed to have an appreciable adverse effect on
competition.
13. On the basis of the above, the Commission notes that in E
addition to ITOs, conduct of COAI also needs to be examined
under the provisions of Section 3(3) of the Act.”
(emphasis added)
26. He submitted that it was the statutory duty of the CCI,
enumerated in Section 18 of the Act, to eliminate anti-competitive F
practices and the focus of the CCI was confined to this Court’s judgment
in the case of Haridas Exports v. All India Float Glass
Manufacturers’ Assn. & Ors.1 wherein it was held that where statutes
operate in different fields and have different purposes, it cannot be said
that there is implied repeal by one, of the other. In the said case, this G
Court was considering alleged conflict between the Monopolies &
Restrictive Trade Practices Act, 1969 and the Anti-Dumping Rules under
the Customs Act/Customs Tariff Act. It was held:

1
(2002) 6 SCC 600 H
520 SUPREME COURT REPORTS [2018] 14 S.C.R.

A “48. The jurisdiction of the MRTP Commission, in our opinion, is
not ousted by the anti-dumping provisions in the Customs Act.
The two Acts operate in different fields and have different
purposes. The Import Control Act and the Customs Tariff Act are
concerned with import of goods into India and the duty which
could be imposed on the imported items. Import may be allowed
B
on the basis of an import licence or, depending upon the policy,
import may be allowed under OGL — open general licence —
where no specific licence for import is required. Whether to allow
import or not and the terms on which an item may be imported is
a matter of policy and regulated by law.
C xx xx xx
52. The levy or non-levy of anti-dumping or other duty being a
legislative act pursuant to the exercise of powers under the
Customs Tariff Act can also not be a subject-matter of judicial
review by the MRTP Commission. The two Acts substantially
D operate in different fields and the following table brings out some
of the distinctions between the MRTP Act and the anti-dumping
provisions:
[table omitted]

E A perusal of the above chart indicates that the two statutes and
regimes operate in different and distinct spheres and there is no
conflict between the two regimes/statutes. Hence, the question
of implied repeal of the provisions of Section 33(1)(j) of the MRTP
Act, 1969 on account of the provisions of Section 9-A of the
Customs Tariff Act, 1975 does not arise.
F
53. It is thus seen that the provisions relating to anti-dumping
contained in the Customs Tariff Act do not in any way affect the
power or jurisdiction of the MRTP Commission. The Import Control
Act and the Customs Tariff Act on the one hand and the MRTP
Act on the other operate in different independent fields and the
G authority under one has no jurisdiction over the other. In other
words, their paths do not cross each other. While the provisions
of the Anti-Dumping Act are concerned with the levy of anti-
dumping duty, the MRTP Act in the present case would be
concerned with the agreements between the parties which relate
to the restrictive trade practices. Therefore, it would be incorrect
H
COMPETITION COMMISSION OF INDIA v. BHARTI AIRTEL 521
LIMITED AND ORS. [A. K. SIKRI, J.]

to say that the incorporation of the anti-dumping provisions ousts A
the jurisdiction of the MRTP Commission to inquire and pass orders,
inter alia, with regard to restrictive trade practice in India.”
The learned ASG pointed out that the allegation against the
respondents i.e. IDOs is that they have through an anti-competitive
agreement/cartel, limited the provision of services by delaying or denying B
POIs to RJIL, with a view to block its entry in the market. As per him,
such an agreement would raise a presumption of ‘appreciable adverse
effect’ on competition.
27. Explaining the scheme of the Act, Mr. Narasimha referred to
the provisions of Section 3 which prohibits anti-competitive agreements C
of the nature mentioned therein. He also referred to the definitions of
‘agreement’, ‘cartel’, ‘enterprise’ and ‘service’ contained in Section 2
of the Act and submitted that the definition of ‘agreement’ is not restricted
to written agreements, but even extends to ‘action in concert’, which,
according to him, is wide enough to allegations of RJIL, if proved correct,
within the mischief of Section 3 of the Act. He also referred to Section D
19(3) of the Act which lists certain factors to be considered in analysing
adverse effect on competition and submitted that creation of barriers to
new entrants in the market and foreclosure of competition by hindering
entry into the market are to be perceived as having adverse effect on
competition. He, thus, submitted that having regard to the aforesaid E
provisions, the CCI wanted to investigate the matter with focus on the
aspect as to whether there was an agreement between the respondent
service providers and they acted in concert pursuant to the said
agreement; whether it amounted to anti-competitive act on the part of
these respondents and had adverse effect on the competition. In the
process, the CCI was also supposed to examine as to whether the F
respondents colluded with COAI and abused their dominant position.
His further argument was that inquiry into these aspects was within the
exclusive domain of the CCI as it is the CCI which is supposed to ensure
that no such anti-competitive practices are adopted by anybody and if
that has happened, the CCI is empowered to issue directions in terms of G
Section 27 of the Act and also impose penalties. It has power to impose
even lesser penalties as provided in Section 46 of the Act.
28. Mr. Narasimha also referred to Section 60 of the Act which
provides for overriding effect for the Act and reads as under:
H
522 SUPREME COURT REPORTS [2018] 14 S.C.R.

A “60. Act to have overriding effect. - The provisions of this Act
shall have effect notwithstanding anything inconsistent therewith
contained in any other law for the time being in force.”
It was emphasised that the case of the CCI is not that the TRAI
does not have power to exercise jurisdiction at all in the present factual
B matrix and there is no conflict of jurisdiction or legal regimes. Rather,
both the TRAI and the CCI exercise their jurisdiction in their respective
fields. Exercise of jurisdiction by the CCI to investigate an alleged cartel
does not impinge upon TRAI’s jurisdiction to regulate the industry in any
way. Submission in this behalf was that the TRAI exercises its jurisdiction
by ensuring compliance with the interconnect agreements, license
C conditions, interconnection regulations, quality of service norms and
regulations etc. Based on past experience, the TRAI frames regulations
for the improvement of the telecom industry in the future. For instance,
the June 07, 2005 direction of TRAI which provided for a 90-day period
for interconnection has now been replaced by the interconnection
D regulations of 2018, by which the time period for provision of POIs has
been reduced to 30 days, because it was found that due to technical
advancements, it was possible to give POIs in a much shorter time frame,
and parties were using the 90-day period to delay the provision of POIs,
as in the case of RJIL. However, the TRAI does not have the power to
penalize for past conduct which was of anti-competitive nature. It was
E further submitted that while the competition law seeks to promote
efficient allocation and utilization of resources by inter alia lowering the
entry barriers in the market, the primary objective of the sectoral
regulators like the TRAI is development of their respective sector.
However, what is important to bear in mind is that the promotion of
F competition and prevention of competitive behaviour may not be high on
the agenda of a sectoral regulator which makes it prone to ‘regulatory
capture’. The position has been very succinctly captured by the Report
of the Working Group on Competition Policy, Planning Commission of
India, Government of India, February 2007 which states as follows:
G “7.2.3 The objective of a sectoral regulator is to provide good
quality service at affordable rates, but the promotion of
competition and prevention of anti-competitive behaviour may
not be high on its agenda or the laws governing the regulator
may be silent on this aspect. It is not uncommon for sectoral
regulators to be more closely aligned with the interest of the
H
COMPETITION COMMISSION OF INDIA v. BHARTI AIRTEL 523
LIMITED AND ORS. [A. K. SIKRI, J.]

firms being regulated, which is also known as ‘regulatory A
capture’. Besides, a sectoral regulator may not have an overall
view of the economy as a whole and may tend to apply
yardsticks which are different from the ones used by the other
sectoral regulators. In other words, there is a possibility of
the lack of consistency across sectors. On the other hand,
B
CCI will be able to apply uniform competition principles across
all sectors of economy.”
(emphasis added)
The National Competition Policy 2011 has also observed as
following: C
“8.3 The objective of a sectoral regulator is to provide good
quality service at affordable rates, but the promotion of
competition and prevention of anti-competitive behaviour may
not be high on its agenda or the laws governing the regulator
may be silent on this aspect. Besides, a sectoral regulator D
may not have an overall view of the economy as a whole and
may tend to apply yardsticks which are different from the ones
used by the other sectoral regulators. In other words, there
is a possibility of the lack of consistency across sectors as
regards competition issues. On the other hand, the CCI, which
is expected to have developed the core competence, expertise E
and capacity in competition related issues, will be able to
apply uniform competition principles across all sectors of
economy. Besides, enforcement and penalizing violations of
Competition Act is the exclusive area of the CCI. Even
otherwise, the general principle for economic efficiency F
would be, whoever can do a thing in best and most
professional manner should do it.”
(emphasis added)
29. The learned ASG, on taking support from the above, submitted
that the sectoral regulators, by contrast, will not be as experienced in G
conducting competition analysis as the competition authorities. Being
susceptible to regulatory capture, the day-to-day interactions between
industry officials and regulatory agency may lead to a commonality of
interests that can interfere with the perspective necessary to evaluate
competitive harms and to construct remedies that will protect competition
H
524 SUPREME COURT REPORTS [2018] 14 S.C.R.

A for the benefit of the economy as a whole. While the sector specific
regulators typically impose and monitor various behavioral conditions,
the competition agencies are more likely to opt for structural remedies
which would lead the sector to evolve to a point where sufficient new
entry is induced thereby promoting genuine competition. According to
him, keeping in view the aforesaid respective roles in mind, the Parliament
B
in its wisdom and foresight has built in a mechanism within the Act to
address apparent conflicts of jurisdiction. The ‘comity’ between the
sectoral regulator (TRAI) and the market regulator (CCI) is entirely
addressed by a reading of Section 21 and Section 21A of the Act. In
any case, Section 60 of the Act had an overriding effect. To support his
C argument, the learned ASG relied upon State (NCT of Delhi) v. Sanjay2
wherein this Court dealt with the issue of whether a prescription of
offence under the Mines & Minerals Development & Regulation
(MMDR) Act would exclude the application of the Indian Penal Code.
The Court held that due to the absence of a non-obstante clause, the
application of the Indian Penal Code was not excluded. In the present
D
case, the TRAI Act does not apply notwithstanding any other laws, and
it does not contain an overriding effect provision containing a non-obstante
clause. The relevant paragraphs of the judgment have been extracted
below:
“62. Sub-section (1-A) of Section 4 of the MMDR Act puts a
E restriction in transporting and storing any mineral otherwise than
in accordance with the provisions of the Act and the Rules made
thereunder. In other words no person will do mining activity without
a valid lease or licence. Section 21 is a penal provision according
to which if a person contravenes the provisions of sub-section (1-
F A) of Section 4, he shall be prosecuted and punished in the manner
and procedure provided in the Act. Sub-section (6) has been
inserted in Section 4 by amendment making the offence cognizable
notwithstanding anything contained in the Code of Criminal
Procedure, 1973. Section 22 of the Act puts a restriction on the
court to take cognizance of any offence punishable under the Act
G or any Rule made thereunder except upon a complaint made by a
person authorised in this behalf. It is very important to note that
Section 21 does not begin with a non obstante clause. Instead of
the words “notwithstanding anything contained in any law for the

2
H (2014) 9 SCC 772
COMPETITION COMMISSION OF INDIA v. BHARTI AIRTEL 525
LIMITED AND ORS. [A. K. SIKRI, J.]

time being in force no court shall take cognizance….”, the section A
begins with the words “no court shall take cognizance of any
offence.
63. It is well known that a non obstante clause is a legislative
device which is usually employed to give overriding effect to certain
provisions over some contrary provisions that may be found either B
in the same enactment or some other enactment, that is to say, to
avoid the operation and effect of all contrary provisions.”
30. He also premised his argument on the basis that the Act is a
special statute in the field of telecommunications regulation, including
technical aspects connected thereto, and in case of conflict between C
two special legislations, the later enactment would prevail. In Solidaire
India Ltd. v. Fairgrowth Financial Services Ltd. & Ors.3, this Court
held as under:
“7. Coming to the second question, there is no doubt that the 1985
Act is a special Act. Section 32(1) of the said Act reads as follows: D
“32. Effect of the Act on other laws.—(1) The provisions of
this Act and of any rules or schemes made thereunder shall
have effect notwithstanding anything inconsistent therewith
contained in any other law except the provisions of the Foreign
Exchange Regulation Act, 1973 (46 of 1973) and the Urban E
Land (Ceiling and Regulation) Act, 1976 (33 of 1976) for the
time being in force or in the Memorandum or Articles of
Association of an industrial company or in any other instrument
having effect by virtue of any law other than this Act.”
8. The effect of this provision is that the said Act will have effect F
notwithstanding anything inconsistent therewith contained in any
other law except to the provisions of the Foreign Exchange
Regulation Act, 1973 and the Urban Land (Ceiling and Regulation)
Act, 1976. A similar non obstante provision is contained in Section
13 of the Special Court Act which reads as follows:
G
“13. Act to have overriding effect.—The provisions of this
Act shall have effect notwithstanding anything inconsistent
therewith contained in any other law for the time being in force
or in any instrument having effect by virtue of any law, other
3
(2001) 3 SCC 71 H
526 SUPREME COURT REPORTS [2018] 14 S.C.R.

A than this Act, or in any decree or order of any court, tribunal or
other authority.”
9. It is clear that both these Acts are special Acts. This Court has
laid down in no uncertain terms that in such an event it is the later
Act which must prevail. The decisions cited in the above context
B are as follows: Maharashtra Tubes Ltd. v. State Industrial &
Investment Corpn. of Maharashtra Ltd. [(1993) 2 SCC 144];
Sarwan Singh v. Kasturi Lal [(1977) 1 SCC 750 : (1977) 2 SCR
421]; Allahabad Bank v. Canara Bank [(2000) 4 SCC 406] and
Ram Narain v. Simla Banking & Industrial Co. Ltd. [AIR 1956
SC 614 : 1956 SCR 603]”
C
31. The learned ASG endeavoured to support his proposition by
referring to the contrasting provision contained in Section 14 of the TRAI
Act which provides for dispute resolution in respect of various categories
of persons before the TDSAT, which specifically carves out an exception
in respect of monopolistic trade practice, restrictive trade practice and
D unfair trade practice, which was subject to the jurisdiction of the
Monopolies and Restrictive Trade Practices Commission (MRTP
Commission). He submitted that this was another indicator in the TRAI
Act itself from which it can be inferred that when it comes to anti-
competitive practices, an embargo is put on the TRAI to deal with such
E practices, inasmuch as the Competition Act is enacted to repeal and
replace the obsolete regime of the MRTP Act. In this behalf, he drew
sustenance from Section 8 of the General Clauses Act to submit that the
Competition Act could be read in place of MRTP Act while construing
the provisions of Section 14 of the TRAI Act.

F 32. His another submission, in this hue, was that a distinction needs to be
drawn between facilitating competition (as provided in Section 11 of the
TRAI Act) on the one hand and curbing and deterring anti-competitive
conduct and practices on the other hand. His submission in this behalf
was that the function of the TRAI under Section 11(1)(a)(iv) was to
facilitate competition which was purely recommendatory in nature and
G not part of regulatory function of the TRAI, as held in Union of India
and Another v. Association of Unified Telecom Service Providers of
India and Others4. He also argued that TRAI has no power to enforce
compliance, pass orders, or give directions of the nature envisaged under
the Act to curb anti-competitive conduct.
H 4
(2011) 10 SCC 543
COMPETITION COMMISSION OF INDIA v. BHARTI AIRTEL 527
LIMITED AND ORS. [A. K. SIKRI, J.]

33. The learned ASG also relied upon the judgment of the European A
Commission in Deutsche Telekom v. European Commission5 wherein
it was held that it is only if the legislative framework eliminates the
possibility of competition (for example, a statutory monopoly) that the
jurisdiction of the Commission would be excluded. Following passage
from the said judgment was specifically referred to:
B
“80. According to the case-law of the Court of Justice, it is only
if anti-competitive conduct is required of undertakings by national
legislation, or if the latter creates a legal framework which itself
eliminates any possibility of competitive activity on their part, that
Articles 81 EC and 82 EC do not apply. In such a situation, the
restriction of competition is not attributable, as those provisions C
implicitly require, to the autonomous conduct of the understandings.
Articles 81 EC and 82 EC may apply, however, if it is found that
the national legislation leaves open the possibility of competition
which may be prevented, restricted or distorted by the autonomous
conduct of undertakings (Joined Cases C-359/95P and C-379/ D
95P Commission and France v. Ladbroke Racing (1997) ECR I-
6265, paragraphs 33 and 34 and the case-law cited).”
34. Mr. Narasimha also referred to another judgment of the
General Court of the European Union in Telefonica SA v. European
Commission (T-336/07) wherein it was held that the European E
Commission could intervene in the telecommunications market, even
though the entry was regulated through a sectorial regulator. He pointed
out that this decision of the General Court was upheld in appeal by the
European Court of Justice vide its judgment dated July 10, 2014.
35. Mr. Narasimha also contrasted the investigative regime under F
the two Acts, i.e. Section 12 of the TRAI Act vis-a-vis Section 41 read
with Section 36(2) of the Competition Act and submitted that the Director
General under the Competition Act is better equipped to deal with
detection and investigation of anti-competitive agreements.
36. Labelling as erroneous, the approach of the High Court that G
CCI should await the outcome of the proceedings before TRAI to attain
finality, answer given by Mr. Narasimha was that this approach was
erroneous for three reasons. First, the High Court has failed to appreciate
the different fields/domains in which the CCI and the TRAI operate.
5
Case C-280/08P, Judgement dated 14.10.2010 H
528 SUPREME COURT REPORTS [2018] 14 S.C.R.

A Secondly, the course of action proposed by the High Court would result
in considerable delay defeating the CCI’s investigation. Thirdly, the High
Court has failed to notice the role played by Section 21A of the Act.
37. He again emphasised that CCI is not inquiring into the adequacy
of POIs provided to RJIL by the respondents, or compliance with the
B QoS standards of TRAI and licence conditions, but was examining whether
the conduct of the respondents was unilateral or it was the result of anti-
competitive agreement. Insofar as requirement of speedy investigation
by the CCI is concerned, he submitted that such a requirement has
already been acknowledged and mandated by this Court in Competition
Commission of India v. Steel Authority of India Limited and Another6.
C Further, if at any stage, prior to or after taking a decision, the CCI is of
the view that opinion of TRAI is required, it could always make reference
under Section 21A of the Competition Act.
38. On the second proposition, namely, the High Court could not
have entertained writ jurisdiction in respect of an order passed under
D Section 26(1) of the Competition Act, Mr. Narasimha clarified that he
was not taking the position that the High Court ,in no circumstance/
situation, exercise its extraordinary jurisdiction under the said provision,
in spite of an order passed under Section 26 of the Competition Act. His
submission, however, was that as per the judgment in Steel Authority of
E India Limited case, such jurisdiction would be very narrow and is to be
exercised in exceptional cases. According to him, no such exceptional
circumstance arises in the instant case as order in question was only a
prima facie view of the CCI and such an order was administrative in
nature. Learned ASG specifically referred to the following discussion in
the case of Steel Authority of India Limited:
F
“38. In contradistinction, the direction under Section 26(1) after
formation of a prima facie opinion is a direction simpliciter to cause
an investigation into the matter. Issuance of such a direction, at
the face of it, is an administrative direction to one of its own wings
departmentally and is without entering upon any adjudicatory
G process. It does not effectively determine any right or obligation
of the parties to the lis. Closure of the case causes determination
of rights and affects a party i.e. the informant; resultantly, the
said party has a right to appeal against such closure of case under

6
H (2010) 10 SCC 744
COMPETITION COMMISSION OF INDIA v. BHARTI AIRTEL 529
LIMITED AND ORS. [A. K. SIKRI, J.]

Section 26(2) of the Act. On the other hand, mere direction for A
investigation to one of the wings of the Commission is akin to a
departmental proceeding which does not entail civil consequences
for any person, particularly, in light of the strict confidentiality that
is expected to be maintained by the Commission in terms of Section
57 of the Act and Regulation 35 of the Regulations.
B
xx xx xx
97. The above reasoning and the principles enunciated, which are
consistent with the settled canons of law, we would adopt even in
this case. In the backdrop of these determinants, we may refer to
the provisions of the Act. Section 26, under its different sub- C
sections, requires the Commission to issue various directions, take
decisions and pass orders, some of which are even appealable
before the Tribunal. Even if it is a direction under any of the
provisions and not a decision, conclusion or order passed on merits
by the Commission, it is expected that the same would be supported
by some reasoning. At the stage of forming a prima facie view, as D
required under Section 26(1) of the Act, the Commission may not
really record detailed reasons, but must express its mind in no
uncertain terms that it is of the view that prima facie case exists,
requiring issuance of direction for investigation to the Director
General. Such view should be recorded with reference to the E
information furnished to the Commission. Such opinion should be
formed on the basis of the records, including the information
furnished and reference made to the Commission under the various
provisions of the Act, as aforereferred. However, other decisions
and orders, which are not directions simpliciter and determining
the rights of the parties, should be well reasoned analysing and F
deciding the rival contentions raised before the Commission by
the parties. In other words, the Commission is expected to express
prima facie view in terms of Section 26(1) of the Act, without
entering into any adjudicatory or determinative process and by
recording minimum reasons substantiating the formation of such G
opinion, while all its other orders and decisions should be well
reasoned.”
39. He also drew the attention of the Court to paragraph 25 of the
CCI’s order dated April 21, 2017 as per which the Director General was
asked to conduct the investigation without being swayed in any manner H
530 SUPREME COURT REPORTS [2018] 14 S.C.R.

A whatsoever by the observations made by the CCI in the said order. He
submitted that in these circumstances the said order was merely
administrative in nature and could not be labelled as quasi-judicial order.
In the same vein his further submission was that the observations of the
High Court that the CCI has decided several issues and elements with
clear adverse consequences was clearly erroneous and contrary to the
B
well-established principle of law. In support, he also referred to the
judgments of the Bombay and the Allahabad High Courts.
40. Dilating on his third proposition, namely, the CCI order was
not perverse, he submitted that there was sufficient material before the
CCI for formation of a prima facie opinion that the conduct of the
C respondents was violative of Section 3(3)(b) of the Competition Act.
He submitted that such material was taken into consideration and
discussed in the order itself and he referred to certain paragraphs of the
order dated April 21, 2017 in this behalf. In the process, he again
emphasised that none of the observations made in the said order are
D conclusive findings in any way and not binding on the Director General
and this was only the starting point, as held in the case of Excel Crop
Care Limited.
41. M/s. Harish Salve, Dr. A.M. Singhvi, Ramji Srinivasan and
Amit Sibal, learned senior advocates, argued on behalf of RJIL. Their
E detailed submissions were almost on the lines on which Mr. Narasimha,
learned ASG, had argued on behalf of the CCI.
42. In the first place, it was emphasised that insofar as dragging
of COAI into this investigation is concerned, it was sought to be justified
by placing reliance on Section 3 of the Act which specifically recognises
F possible mischief by an association of persons or an association of
enterprises. It was stressed that Section 3(3) recognises certain
agreements as per se violations, and shall be presumed to have appreciable
adverse effect on competition. Submission was that associations of
enterprises, after the operation of the Act are now liable to be viewed
with great suspicion in view of the fact that by its very nature an
G association of competing enterprises provides a convenient platform for
such competitors to assemble together.
43. The involvement of COAI was sought to be proved by arguing
that the IDOs have not argued that COAI letters must be ignored since
the decision to provide or not to provide POIs to its competitor was
H
COMPETITION COMMISSION OF INDIA v. BHARTI AIRTEL 531
LIMITED AND ORS. [A. K. SIKRI, J.]

taken by each of them independently either Airtel by itself, or Vodafone A
by itself, or Idea by itself. But the facts of the case disclose active
involvement by that common platform called COAI. As per the Reliance
Jio, the COAI admittedly facilitated exchange of information between
the three IDOs. It draws references in its response to private letters
exchanged between Reliance Jio and each of the IDOs separately. The
B
decisions of the COAI are not decisions of a majority comprising of a
large and diverse pool of members that could suggest a democratic
decision making. By its very constitution, the COAI’s majority views
were nothing but the common views of the three IDOs that controlled it.
It was also argued that in the preliminary conference and in the High
Court defence raised was that COAI was not a front for these three C
IDOs but was merely espousing general industry issues. It does not
explain how it chanced upon private documents and correspondence
exchanged bilaterally between RJIL with each of the IDOs separately.
It does not explain how it voiced the common decisions on behalf of
those three IDOs. The COAI was not the fourth voice but was the
D
prohibited chorus of those three colluding competitors. Thus, no
legitimacy can be attributed to actions of the COAI. Attention of the
Court was drawn to the letter dated August 08, 2016 (before the
announcement of launch of services by Reliance Jio dated September
01, 2016) and the letter dated September 02, 2016 (after the launch of
Reliance Jio) which, according to Reliance Jio, expose the common E
collusive conduct of these competitors to first delay the launch and
secondly to scuttle the launch. It was also contended that the concerted,
collusive conspiracy by the three existing IDOs (having a collective
market share of 65%) to meet with each other under auspices of their
association called Cellular Operators Association of India (COAI) and
F
evolve a common strategy to respond to challenge posed by a new entrant
RJIL, is by itself violative of Section 3 of the Act. The learned senior
counsel pointed out that the defence of the COAI is that it was merely
lobbying the Government for enacting a change in law or regulation to
stop Reliance Jio from carrying out test on such a large scale by
introducing limits on number of Test-subscribers. However, the letters G
of COAI revealed an active participation of taking sides of certain
operators whose interest was to hinder, or at least slowdown the entry
of the new operator. COAI announced unilateral decisions like virtual
boycott (which is not the same as lobbying for change of regulation). To
H
532 SUPREME COURT REPORTS [2018] 14 S.C.R.

A support this argument, reference was made to the decisions of Supreme
Court of United States in FTC v. Supreme Court Trial Lawyers
Association7 wherein it has observed that:
“no violation of the Act can be predicated upon mere attempts to
influence the passage or enforcement of laws,” even if the
B defendants’ sole purpose is to impose a restraint upon the trade of
their competitors. But in the Noerr case the alleged restraint of
trade was the intended consequence of public action; in this case
the boycott was the mans by which respondents sought to obtain
favourable legislation. The restraint of trade that was implemented
while the boycott lasted would have had precisely the same
C anticompetitive consequences during that period even if no
legislation had been enacted. In Noerr, the desired legislation
would have created the restraint on the truckers’ competition; in
this case the emergency legislative response to the boycott put an
end to the restraint.”
D 44. On the submission that the dangers of a trade association
being hijacked to further the cause of only a few competitors and yet
attempt to give the entire exercise a veneer of respectability has been
also commented upon in the recent decision of this Court in Competition
Commission of India v. Coordination Committee of Artistes and
E Technicians of West Bengal Film and Television & Ors.8 wherein it
has been observed that:
“47. In the instant case, admittedly the Coordination Committee,
which may be a “person” as per the definition contained in Section
2(l) of the Act, is not undertaking any economic activity by itself.
F Therefore, if we were to look into the “agreement” of such a
“person” i.e. Coordination Committee, it may not fall under Section
3(1) of the Act as it is not in respect of any production, supply,
distribution, storage, acquisition or control of goods or provision of
services. The Coordination Committee, which as a trade union
acting by itself, and without conjunction with any other, would not
G be treated as an “enterprise” or the kind of “association of persons”
described in Section 3. A trade union acts as on behalf of its
members in collective bargaining and is not engaged in economic
activity. In such circumstances, had the Coordination Committee
7
493 US 411 (1990)
8
H (2017) 5 SCC 17
COMPETITION COMMISSION OF INDIA v. BHARTI AIRTEL 533
LIMITED AND ORS. [A. K. SIKRI, J.]

acted only as trade unionists, things would have been different. A
Then, perhaps, the view taken by the Tribunal could be sustained.
However, what is lost in translation by the Tribunal i.e. in applying
the aforesaid principle of the activity of the trade union, is a very
pertinent and significant fact, which was taken note of by the DG
as well as CCI in its majority opinion. It is this: the Coordination
B
Committee (or for that matter even Eimpa) are, in fact, association
of enterprises (constituent members) and these members are
engaged in production, distribution and exhibition of films. Eimpa
is an association of film producers, distributors and exhibitors,
operating mainly in the State of West Bengal. Likewise, the
Coordination Committee is the joint platform of Federation of C
Senior Technician and Workers of Eastern India and West Bengal
Motion Pictures Artistes’ Forum. Both Eimpa as well as the
Coordination Committee acted in a concerted and coordinated
manner. They joined together in giving call of boycott of the
competing members i.e. the informant in the instant case and,
D
therefore, the matter cannot be viewed narrowly by treating
Coordination Committee as a trade union, ignoring the fact that it
is backing the cause of those which are “enterprises”. The
constituent members of these bodies take decision relating to
production or distribution or exhibition on behalf of the members
who are engaged in the similar or identical business of production, E
distribution or exhibition of the films. Decision of these two bodies
reflected collective intent of the members. When some of the
members are found to be in the production, distribution or exhibition
line, the matter could not have been brushed aside by merely giving
it a cloak of trade unionism. For this reason, the argument
F
predicated on the right of trade union under Article 19 of the
Constitution, as professed by the Coordination Committee, is also
not available.”
(emphasis supplied)
Arguments: The respondents: G
45. Mr. Darius J. Khambata, senior advocate, appeared on behalf
of Idea Cellular Ltd. Mr. Gopal Jain and Mr. Navroz Seervai, senior
advocates, appeared on behalf of Bharti Airtel Ltd. Mr. Ranjit Kumar,
Mr. Arvind Datar and Mr. Sidharth Luthra, senior advocates, appeared
H
534 SUPREME COURT REPORTS [2018] 14 S.C.R.

A on behalf of Vodafone India Ltd. Mr. P. Chidambaram, senior advocate,
appeared on behalf of the COAI. TRAI had also intervened in the matter
and supported the legal submission of the IDOs, namely, that TRAI had
the exclusive jurisdiction to deal with the matter, i.e. there was a complete
absence of jurisdiction in CCI to deal with the issue at hand. Instead of
taking note of the submissions of these counsel separately, we are taking
B
note of the submissions in a consolidated manner as that would avoid
repetition.
46. The submissions of the respondents can be paraphrased as
under:
C (i) The TRAI Act, being a special law, ousts the jurisdiction of
CCI to examine the telecom sector. In that sense, exclusive jurisdiction
vests in TRAI to regulate the telecom sector, including competition related
issues, thereby ousting the jurisdiction of the CCI altogether.
(ii) Even if the CCI has the jurisdiction, TRAI’s jurisdiction will
D prevail.
(iii) In the alternative, the jurisdictional facts, in any case, had to
be determined by the TRAI in the first place. Since there was absence
of jurisdictional facts, the CCI could not have proceeded with the matter
and ordered the investigation. Thus, the CCI’s order for carry out
E investigation is premature.
(iv) The impugned order passed by the CCI under Section 26(1)
of the Competition Act applies the ‘prima facie test’ and consequences
of such an order are grave. Such an order was quasi-judicial in nature
and, therefore, amenable to judicial review under Article 226 of the
F Constitution of India. Thus, the writ petitions filed by the IDOs challenging
this order were maintainable.
(v) On merits, the prima facie order passed by the CCI was
without considering the material submitted by the IDOs. In this behalf it
was argued that the IDOs had provided sufficient POIs and given ample
proof thereof, which was not taken into consideration by the CCI while
G
passing the impugned order under Section 26(1) of the Competition Act.
This also becomes a valid ground to challenge the order by filing writ
petition under Article 226 of the Constitution of India.

H
COMPETITION COMMISSION OF INDIA v. BHARTI AIRTEL 535
LIMITED AND ORS. [A. K. SIKRI, J.]

47. Insofar as the argument of the respondents that the TRAI A
Act is a complete code and the jurisdiction of CCI is totally ousted, the
argument proceeded on the following basis:
The real issue which arises is comparison of two regimes – one
regulated by TRAI under the Indian Telegraph Act, 1885, Wireless
Telegraphy Act, 1933 and the TRAI Act, 1997 which together forms a B
comprehensive and complete code; and the other being CCI under the
Competition Act. The various provisions under these legislations seen
with the terms of the License Agreement show that the issues arising
out of interconnection between different operators shall be determined
within the overall framework of the interconnection regulations/directions/
orders issued by TRAI from time to time. The Object and Reasons of C
the TRAI Act itself lays down that it is mandated to make arrangements
for protection and promotion of consumer interest and ensuring fair
competition and to ensure orderly and healthy growth of
telecommunication infrastructure. Moreover, the competition in the
telecom sector is of a different kind as it has to function under the D
constant monitoring and regulation of TRAI. TRAI effectively plays
the role of a watchdog of the sector as otherwise the entire sector would
collapse if there is no interdependence between the telecom operators.
Moreover, under Section 11(1)(a)(iv) of the TRAI Act, the authority is
required to take measures to facilitate competition in the market. CCI
can ensure competition only in an unregulated sector and not in the likes E
of the telecom sector wherein even the tariffs are capped/determined
by TRAI.
48. On the aforesaid basis, the submission was that:
(a) The TRAI Act is a complete code. F
(b) Exclusive jurisdiction vests in TRAI to regulate the telecom
sector including competition related issues.
(c) The TDSAT has the exclusive jurisdiction to examine the
disputes between licensees including the one raised by RJIL before CCI.
G
(d) CCI has no jurisdiction to decide disputes pertaining to the
telecom sector.
In this hue it was submitted that the Statement of Objects and
Reasons of the TRAI Act made it abundantly clear by satisfying that
TRAI was supposed to make “arrangements for protection and promotion
H
536 SUPREME COURT REPORTS [2018] 14 S.C.R.

A of consumer interest and ensuring fair competition...”. It was, thus,
clear that even the competition aspects of the telecom sector were within
the domain of TRAI. The respondents also drew comparison of the
Preamble of the Competition Act with that of the TRAI Act to point out
that insofar as dealing with the issue of fair competition in telecom sector
is concerned, it was overlapping to a great extent in the following manner:
B
Competition Act TRAI Act
An Act to provide, keeping in view the An Act to provide for the
economic development of the country, establishment of the Telecom
for the establishment of a Commission Regulatory Authority of India and
to the Telecom Dispute Settlement
and Appellate Tribunal (“TDSAT”)
C to

“prevent practices having adverse effect [-]
on competition

to promote and sustain competition in [for protection and promotion of
markets consumer interest and ensuring
D fair competition (Statement of
Object and Reasons)]

to protect interests of consumers and to protect the interest of the
service providers and consumers
of the telecom sector (Preamble)

to ensure freedom of trade carried on by to promote and ensure orderly
E other participants in the markets, in growth of the telecom sectoral
India

for matters connected therewith or For matters connected therewith
incidental thereto” and incidental thereto
49. It was submitted that pursuant to Section 11(1)(a)(iv) read
F with Section 11(1)(b)(ii), (iii), (iv) of the TRAI Act (including directions
and regulations issued by TRAI), the TRAI has been statutorily mandated
to perform functions on a variety of matters including measures aimed
at facilitating competition and regulated interconnection between service
providers. Reliance was also placed on Section 12 of the TRAI Act
which empowers TRAI with vast powers to discharge its functions,
G including to call for information, conduct investigations and issue such
necessary directions as it may deem necessary for the discharge of its
functions. Moreover, TRAI has also been empowered to issue
appropriate directions under Section 12 and make regulations under
Section 36 of the TRAI Act. Section 29 of the TRAI Act provides for
H
COMPETITION COMMISSION OF INDIA v. BHARTI AIRTEL 537
LIMITED AND ORS. [A. K. SIKRI, J.]

penalties for contravention of directions of the TRAI. Further, under A
Section 14A of the TRAI Act, it has been provided that any person may
make an application before the TDSAT. With regard to the jurisdiction,
Section 15 and 27 of the TRAI Act provide for explicit bar on jurisdiction
of the civil courts to determine any matter with regard to which TDSAT
or TRAI have been empowered by or under the TRAI Act.
B
50. It was submitted that in the present case, at the time RJIL
filed its Information before the CCI on November 08, 2016 as also when
the prima facie order was passed on April 21, 2017, TRAI was seized
of the matter pertaining to provisioning of POIs and even made certain
recommendations to the DoT on October 21, 2016. Accordingly, TRAI
had assumed jurisdiction and was exercising the same. Thus, the dispute C
was being dealt with and was addressed by the TRAI and even on this
ground, the jurisdiction of the CCI stands ousted.
51. The TDSAT has the exclusive jurisdiction to examine the
disputes between licensees including the one raised by RJIL before CCI.
This very submission on the exclusion of CCI’s jurisdiction was sought D
to be projected from another angle. It was submitted that in the
Information filed by RJIL before the CCI, Reliance Jio stressed:
(a) The dispute raised by RJIL before the CCI pertains to the
specific performance of the Interconnect Agreement and the rights and
liabilities arising therefrom; E

(b) The Interconnect Agreement is completely regulated by the
TRAI inter alia under Section 11(1)(b)(ii), (iii), (iv) of the TRAI Act
read with the Quality of Service Regulations, 2009 issued thereunder.
The argument was that the prayers sought by RJIL in the F
Information filed before the CCI clearly demonstrate that RJIL was
seeking specific performance of the Interconnect Agreement. Hence,
RJIL has dressed up what is essentially a contractual complaint into
anti-competition clothing. In the present dispute, upon a meaningful
reading of the Information it can clearly be seen that through clever
drafting, RJIL has dressed up the allegations of delay/denial of the POIs G
as alleged anti-competitive behaviour. In this behalf, reliance was placed
on the decision of this Court in Begum Sabiha Sultan v. Nawab Mohd.
Mansur Ali Khan & Ors.9, wherein it was held:

9
(2007) 4 SCC 343 H
538 SUPREME COURT REPORTS [2018] 14 S.C.R.

A “10. There is no doubt that at the stage of consideration of the
return of the plaint under Order 7 Rule 10 of the Code, what is to
be looked into is the plaint and the averments therein. At the same
time, it is also necessary to read the plaint in a meaningful manner
to find out the real intention behind the suit. In Moolji Jaitha and
Co. v. Khandesh Spg. and Wvg. Mills Co. Ltd. [AIR 1950 FC
B
83] the Federal Court observed that: (AIR p. 92, para 24)
“The nature of the suit and its purpose have to be determined
by reading the plaint as a whole.”
It was further observed: (AIR p. 92, para 25)
C “The inclusion or absence of a prayer is not decisive of the
true nature of the suit, nor is the order in which the prayers are
arrayed in the plaint. The substance or object of the suit has to
be gathered from the averments made in the plaint and on
which the reliefs asked in the prayers are based.”
D It was further observed: (AIR p. 98, para 59)
“It must be borne in mind that the function of a pleading is only
to state material facts and it is for the court to determine the
legal result of those facts and to mould the relief in accordance
with that result.”
E
52. In support of the submission that a special legislation i.e. the
TRAI Act, will prevail over the provisions of the Competition Act, which
according to the respondents is general in nature, reliance has been placed
on the decisions of this Court in State of Punjab v. Labour Court,
Jullundur & Ors.10. In the said matter, the Court was inter alia seized
F of the issue whether the employee-respondents were at liberty to seek
the payment of gratuity by invoking the remedy available under Section
33-C(2) of the Industrial Disputes Act, 1947 as opposed to the Payment
of Gratuity Act, 1972. In deciding the said dispute, it was held that:
“7. It is apparent that the Payment of Gratuity Act enacts a
G complete code containing detailed provisions covering all the
essential features of a scheme for payment of gratuity. It creates
the right of payment of gratuity, indicates when the right will accrue,
and lays down the principles for quantification of the gratuity. It
provides further for recovery of the amount, and contains an
10
H (1980) 1 SCC 4
COMPETITION COMMISSION OF INDIA v. BHARTI AIRTEL 539
LIMITED AND ORS. [A. K. SIKRI, J.]

especial provision that compound interest at nine per cent per A
annum will be payable on delayed payment. For the enforcement
of its provisions, the Act provides for the appointment of a
controlling authority, who is entrusted with the task of administering
the Act. The fulfilment of the rights and obligations of the parties
are made his responsibility, and he has been invested with an
B
amplitude of power for the full discharge of that responsibility.
Any error committed by him can be corrected in appeal by the
appropriate Government or an Appellate Authority particularly
constituted under the Act.
8. Upon all these considerations, the conclusion is inescapable
that Parliament intended that proceedings for payment of gratuity C
due under the Payment of Gratuity Act must be taken under that
Act and not under any other. That being so, it must be held that
the applications filed by the employee respondents under Section
33-C(2) of the Industrial Disputes Act did not lie, and the Labour
Court had no jurisdiction to entertain and dispose of them. On that D
ground, this appeal must succeed.”
(emphasis supplied)
53. Applying the aforesaid tests to the present case, the submission
of the respondents is that:
E
(a) The subject area of competition law is dealt with by the
Competition Act, 2002.
(b) The TRAI Act, 1997 is a complete code in itself and regulates
the Telecom Sector.
(c) The Preamble, the Statement of Objects and Reasons and F
Section 11(1) of the TRAI Act provide the TRAI with the power to
inter alia regulate competition in the telecom sector.
(d) Accordingly, being the special law regarding the telecom sector,
as regards competition issues arising in the telecom sector, the TRAI
Act would prevail over the Competition Act. G
54. Replying to the argument of the appellants that the TRAI Act
as well as the Competition Act are both special statutes and hence, the
rule of statutory interpretation of special law prevailing over the general
law will be inapplicable in the present dispute, the respondents referred
H
540 SUPREME COURT REPORTS [2018] 14 S.C.R.

A to the decision of this Court in Ashoka Marketing Ltd. & Anr. v. Punjab
National Bank & Ors.11. In the said case, the Court was seized of an
issue on whether the provisions of the Public Premises (Eviction of
Unauthorised Occupants) Act, 1971 would override the provisions of
the Delhi Rent Control Act, 1958 in relation to the premises belonging to
Punjab National Bank Ltd., a body corporate under the Banking
B
Companies (Acquisition and Transfer of Undertakings) Act, 1970. Each
side argued that the enactment relied upon by it is a special statute and
the other enactment is general. The Court held that the Rent Control
Act is a special statute regulating the relationship of landlord and tenant
in the Union Territory of Delhi and even the Public Premises Act is a
C special statute relating to eviction of unauthorised occupants from public
premises. While concluding that both the enactments are special statutes,
the Court held:
“”61. ...in the case of inconsistency between the provisions of
two enactments, both of which can be regarded as special in nature,
D the conflict has to be resolved by reference to the purpose and
policy underlying the two enactments and the clear intendment
conveyed by the language of the relevant provisions therein.
64. ...In our opinion, therefore, keeping in view the object and
purpose underlying both the enactments viz. the Rent Control Act
E and the Public Premises Act, the provisions of the Public Premises
Act have to be construed as overriding the provisions contained
in the Rent Control Act.”
(emphasis supplied)
55. Heavy reliance was placed on the judgment of the United
F States Supreme Court in the case of Credit Suisse v. Billing et al12.
Here the submission was that if the CCI is permitted to examine the
information of RJIL that it was to be provided POIs immediately despite
there being a period of 90 days in the ICA, the following would be the
consequences:
G (i) The same may cause a threat and may alter the functioning of
telecom sector on account of threat of intervention of CCI even where
the acts are in accordance with TRAI’s Regulations. The same would
threaten efficient functioning of the telecom sector.
11
(1990) 4 SCC 406
12
H 551 US 264 (2007)
COMPETITION COMMISSION OF INDIA v. BHARTI AIRTEL 541
LIMITED AND ORS. [A. K. SIKRI, J.]

(ii) The additional benefits to competition would be very small as A
the TRAI Regulations anyway have been framed keeping in mind
“facilitation of competition” in telecom sector.
(iii) The same would encourage future actions before CCI when
telecom related issues will be dressed up as competition issues.
It was the fervent plea that in order to avoid such conflict of B
standards and norms, the TRAI Act being the sectoral law and the TRAI
is already seized of the matter, the CCI should not be allowed to proceed.
56. According to the respondents, the jurisdictional facts in the
present matter would be:
C
(a) Failure to provide adequate POIs in the test phase; or
(b) Delay in providing POIs; or
(c) Providing inadequate POIs.
57. Mr. Datar, in particular, submitted that from a perusal of the
D
extensive pleadings and findings of the High Court, it is manifest that the
above issues are pending consideration before the TRAI/DoT as well
as in connected writ petitions pending adjudication before the Delhi High
Court. The emphasis was that there must first be clear findings on the
above issues in the context of the TRAI Act, Rules and Regulations.
According to him, that alone is not enough. It is necessary to establish E
that violation of the provisions of TRAI Act amounts to “abuse of
dominance” or “anti-competitive agreements”. As per him, Section 21
and 21A of the Competition Act make it clear that jurisdiction of the CCI
is divided into parts, viz:
(a) Economic activity not regulated by any statutory authority. F
(b) Economic activity regulated by a statutory authority.
In the latter case, Section 21A is mandatory and the CCI can act
only in accordance with Sections 21A(1) and (2). Submission was that
in economic activity that is regulated by a statutory authority, CCI can
exercise powers under Section 26 only after complying with Section G
21A. It was predicated on the principle that when the law prescribes
things to be done in a particular manner, all other modes of action are
prohibited. (Bhavnagar University v. Palitana Sugar Mill (P) Ltd. &
Ors. 13)
13
(2003) 2 SCC 111 H
542 SUPREME COURT REPORTS [2018] 14 S.C.R.

A 58. In this hue, it was also argued that the decision of this Court in
Competition Commission of India v. Steel Authority of India Ltd. &
Anr.14 has no application to the present case because it does not deal
with a sector that is regulated by a statutory authority. On the other
hand, reliance was placed on the judgment in the case of Carona Ltd.
v. Parvathy Swaminathan & Sons15.
B
59. It was submitted that the facts of the SAIL case are clearly
distinguishable from the present case as the main issue before the
Supreme Court in SAIL was whether an appeal can be filed against an
order passed under Section 26(1) of the Competition Act. Distinction
was sought to be drawn on the basis of the following facts:
C
(a) in the present case, CCI issued notice and called the TSPs
including Vodafone for a preliminary conference to be held on January
31, 2017 and the parties were heard on January 31, 2017, February 07,
2017 and February 08, 2017;
D (b) hearing was held before CCI and detailed notes on arguments
were submitted with supporting documents by the TSPs including
Vodafone;
(c) the prima facie order has been passed after hearing the
submissions of the TSPs holding that a prima facie case of violation of
E the Competition Act has been made out; and
(d) the prima facie order also provide for reasons in support of
the decision arrived at by the CCI.
60. Justifying the observations of the High Court that the order of
the CCI cannot be treated as an ‘administrative order’, it was submitted
F that the order was passed by the CCI after collecting the detailed
information from the parties and by holding the conferences, calling
material details, documents, affidavits and by recording the opinion. It
was also submitted that the High Court had rightly noted that majority
decision of the CCI has given reasons by overlooking the law and the
record. It was a reasoned order/direction and, therefore, judicial review
G
is permissible. In this behalf it was submitted that the aforesaid view
was taken on the basis of the following:

14
(2010) 10 SCC 744
15
H (2007) 8 SCC 559
COMPETITION COMMISSION OF INDIA v. BHARTI AIRTEL 543
LIMITED AND ORS. [A. K. SIKRI, J.]

(a) whilst an order under Section 26(2) has been made appealable, A
an order under Section 26(1) is not appealable;
(b) an order under Section 26(1) of the Competition Act is a
direction simpliciter to the Director General to cause an investigation;
(c) at the stage of passing of the order under Section 26(1), there
is no adjudicatory process undertaken by the CCI as there is no B
determination of any right or obligation of the parties to the lis; and
(d) the order passed under Section 26(1) does not entail civil
consequences for any person as against a Section 26(2) order wherein
rights of the informant are affected.
C
61. In the alternative, it was argued that the observations of the
Court limited to the extent of the nature of powers vested in the CCI
under Section 26(1) needs reconsideration by this Court.
Our discussion:
62. We have noted of three propositions which were advanced by D
Mr. Narasimha, learned Additional Solicitor General. These are the
main issues which arise for consideration. In fact, other counsel for the
parties have also made their submissions on these aspects. We would,
therefore, focus our discussion on the said propositions. We would like
to mention that while analysing the arguments of all the parties, we have
E
kept in mind their detailed submissions as well as the principles laid down
in various judgments cited by them, even if we have not made specific
mention to these judgments in our discussion.
A. Jurisdiction of the CCI
63. This is the principal issue which is the bone of contention. F
64. In order to discuss and analyse this aspect, it would be apt to
take note of the salient provisions of the Competition Act as well as the
TRAI Act inasmuch as that would facilitate appreciating the arguments
so advanced.
65. In the wake of globalisation and keeping in view the economic G
development of the country, responding to opening of its economy and
resorting to liberalisation, need was felt to enact a law that ensures fair
competition in India by prohibiting trade practices which cause an

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544 SUPREME COURT REPORTS [2018] 14 S.C.R.

A appreciable adverse effect on competition within markets in India and
for establishment of an expert body in the form of Competition
Commission of India, which would discharge the duty of curbing negative
aspects of competition, the Competition Act, 2002 has been enacted by
the Parliament.
B 66. Having regard to this specific objective which the Act seeks
to achieve, provisions contained therein, which are relevant for deciding
the instant appeals, are reproduced below:
“2. Definitions. –
xx xx xx
C
(b) “agreement” includes any arrangement or understanding or
action in concert, –
(i) whether or not, such arrangement, understanding or action
is formal or in writing; or
D (ii) whether or not such arrangement, understanding or action
is intended to be enforceable by legal proceedings;
xx xx xx
(c) “cartel” includes an association of producers, sellers,
distributors, traders or service providers who, by agreement
E
amongst themselves, limit control or attempt to control the
production, distribution, sale or price of, or, trade in goods or
provision of services;
xx xx xx

F (g) “Director General” means the Director-General appointed
under sub-section (1) of section 16 and includes any Additional,
Joint, Deputy or Assistant Directors General appointed under that
section;
xx xx xx
G (m) “practice” includes any practice relating to the carrying on
of any trade by a person or an enterprise;
xx xx xx
(u) “service” means service of any description which is made
available to potential users and includes the provision of services
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COMPETITION COMMISSION OF INDIA v. BHARTI AIRTEL 545
LIMITED AND ORS. [A. K. SIKRI, J.]

in connection with business of any industrial or commercial matters A
such as banking, communication, education, financing, insurance,
chit funds, real estate, transport, storage, material treatment,
processing, supply of electrical or other energy, boarding, lodging,
entertainment, amusement, construction, repair, conveying of news
or information and advertising;
B
xx xx xx
3. Anti-competitive agreements. – (1) No enterprise or
association of enterprises or person or association of persons shall
enter into any agreement in respect of production, supply,
distribution, storage, acquisition or control of goods or provision of C
services, which causes or is likely to case an appreciable adverse
effect on competition within India.
(2) Any agreement entered into in contravention of the provisions
contained in sub-section (1) shall be void.
(3) Any agreement entered into between enterprises or D
associations of enterprises or persons or associations of persons
or between any person and enterprise or practice carried on, or
decision taken by, any association of enterprises or association of
persons, including cartels, engaged in identical or similar trade of
goods or provision of services, which – E
(a) directly or indirectly determines purchase or sale prices;
(b) limits or controls production, supply, markets, technical
development, investment or provision of services;
(c) shares the market or source of production or provision of
F
services by way of allocation of geographical area of market,
or type of goods or services, or number of customers in the
market or any other similar way;
(d) directly or indirectly results in bid rigging or collusive bidding,
shall be presumed to have an appreciable adverse effect on
competition: G

Provided that nothing contained in this sub-section shall apply to
any agreement entered into by way of joint ventures if such
agreement increases efficiency in production, supply, distribution,
storage, acquisition or control of goods or provisions of services.
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546 SUPREME COURT REPORTS [2018] 14 S.C.R.

A Explanation. – For the purpose of this sub-section, “bid rigging”
means by agreement, between enterprises or persons referred to
in sub-section (3) engaged in identical or similar production or
trading of goods or provision of services, which has the effect of
eliminating or reducing competition for bids or adversely affecting
or manipulating the process for bidding.
B
xx xx xx
19. Inquiry into certain agreements and dominant position
of enterprise. – (1) The Commission may inquire into any alleged
contravention of the provisions contained in sub-section (1) of
C section 3 or sub-section (1) of section 4 either on its own motion
or on -
“(a) receipt of any information, in such manner and
accompanied by such fee as may be determined by regulations,
from any person, consumer or their association or trade
D association; or
(b) a reference made to it by the Central Government or a
State Government or a statutory authority.
(2) Without prejudice to the provisions contained in sub-section
(1), the powers and functions of the Commission shall include the
E powers and functions specified in sub-sections (3) to (7).
(3) The Commission shall, while determining whether an
agreement has an appreciable adverse effect on competition under
section 3, have due regard to all or any of the following factors,
namely:
F
(a) creation of barriers to new entrants in the market;
(b) driving existing competitors out of the market;
(c) foreclosure of competition by hindering entry into the
market;
G (d) accrual of benefits to consumers;
(e) improvements in production or distribution of goods or
provision of services;

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COMPETITION COMMISSION OF INDIA v. BHARTI AIRTEL 547
LIMITED AND ORS. [A. K. SIKRI, J.]

(f) promotion of technical, scientific and economic development A
by means of production or distribution of goods or provision of
services.
xx xx xx
21A. Reference by Commission. – (1) Where in the course
of a proceeding before the Commission an issue is raised by any B
party that any decision, which the Commission has taken during
such proceeding or proposes to take, is or would be contrary to
any provision of this Act whose implementation is entrusted to a
statutory authority, then the Commission may make a reference
in respect of such issue to the statutory authority: C
Provided that the Commission, may, suo motu, make such a
reference to the statutory authority.
(2) On receipt of a reference under sub-section (1), the statutory
authority shall give its opinion, within sixty days of receipt of such
reference, to the Commission which shall consider the opinion of D
the statutory authority, and thereafter give its findings recording
reasons therefor on the issues referred to in the said opinion.
xx xx xx
26. Procedure for inquiry under section 19. – (1) On receipt
E
of a reference from the Central Government or a State
Government or a statutory authority or on its own knowledge or
information received under section 19, if the Commission is of the
opinion that there exists a prima facie case, it shall direct the
Director General to cause an investigation to be made into the
matter: F
Provided that if the subject matter of an information received is,
in the opinion of the Commission, substantially the same as or has
been covered by any previous information received, then the new
information may be clubbed with the previous information.
(2) Where on receipt of a reference from the Central Government G
or a State Government or a statutory authority or information
received under section 19,the Commission is of the opinion that
there exists no prima facie case, it shall close the matter forthwith
and pass such orders as it deems fit and send a copy of its order
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548 SUPREME COURT REPORTS [2018] 14 S.C.R.

A to the Central Government or the State Government or the
statutory authority or the parties concerned, as the case may be.
(3) The Director-General shall, on receipt of direction under sub-
section (1), submit a report on his findings within such period as
may be specified by the Commission.
B (4) The Commission may forward a copy of the report referred
to in sub-section (3) to the parties concerned: Provided that in
case the investigation is caused to be made based on reference
received from the Central Government or the State Government
or the statutory authority, the Commission shall forward a copy of
C the report referred to in sub-section (3) to the Central Government
or the State Government or the statutory authority, as the case
may be.
(5) If the report of the Director General referred to in sub-section
(3) recommends that there is no contravention of the provisions
D of this Act, the Commission shall invite objections or suggestions
from the Central Government or the State Government or the
statutory authority or the parties concerned, as the case may be,
on such report of the Director-General.
(6) If, after consideration of the objections and suggestions referred
E to in sub section (5), if any, the Commission agrees with the
recommendation of the Director General, it shall close the matter
forthwith and pass such orders as it deems fit and communicate
its order to the Central Government or the State Government or
the statutory authority or the parties concerned, as the case may
be.
F
(7) If, after consideration of the objections or suggestions referred
to in sub section (5), if any, the Commission is of the opinion that
further investigations is called for, it may direct further investigation
in the matter by the Director General or cause further inquiry to
be made by in the matter or itself proceed with further inquiry in
G the matter in accordance with the provisions of this Act.
(8) If the report of the Director-General referred to in sub-section
(3) recommends that there is contravention of any of the provisions
of this Act, and the Commission is of the opinion that further inquiry

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COMPETITION COMMISSION OF INDIA v. BHARTI AIRTEL 549
LIMITED AND ORS. [A. K. SIKRI, J.]

is called for, it shall inquire into such contravention in accordance A
with the provisions of this Act.
xx xx xx
36. Power of Commission to regulate its own procedure. –
xx xx xx B
(2) The Commission shall have, for the purposes of discharging
its functions under this Act, the same powers as are vested in a
Civil Court under the Code of Civil Procedure, 1908 (5 of 1908),
while trying a suit, in respect of the following matters, namely:–
(a) summoning and enforcing the attendance of any person C
and examining him on oath;
(b) requiring the discovery and production of documents;
(c) receiving evidence on affidavit;
(d) issuing commissions for the examination of witnesses or D
documents;
(e) requisitioning, subject to the provisions of sections 123 and
124 of the Indian Evidence Act, 1872 (1 of 1972), any public
record or document or copy of such record or document from
any office. E
xx xx xx
41. Director General to investigate contraventions. –
(1) The Director General shall, when so directed by the
Commission, assist the Commission in investigating into any
contravention of the provisions of this Act or any rules or regulations F
made thereunder.
(2) The Director General shall have all the powers as are conferred
upon the Commission under sub-section (2) of section 36.
(3) Without prejudice to the provisions of sub-section (2), sections
G
240 and 240A of the Companies Act, 1956 (1 of 1956), so far as
may be, shall apply to an investigation made by the Director
General or any other person investigating under his authority, as
the apply to an inspector appointed under that Act.
Explanation. – For the purposes of this section, –
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550 SUPREME COURT REPORTS [2018] 14 S.C.R.

A (a) the words “the Central Government” under section 240 of
the Companies Act, 1956 (1 of 1956) shall be construed as
“the Commission”;
(b) the word “Magistrate” under Section 240A of the
Companies Act, 1956 (1 of 1956) shall be construed as “the
B Chief Metropolitan Magistrate, Delhi”.
xx xx xx
45. Penalty for offences in relation to furnishing of
information. – (1) Without prejudice to the provisions of section
44, if a person, who furnishes or is required to furnish under this
C act any particulars, documents or any information, –
(a) makes any statement or furnishes any document which he
knows or has reason to believe to be false in any material
particular; or

D (b) omits to state any material fact knowing it to be material;
or
(c) wilfully alters, suppresses or destroys any document which
is required to be furnished as aforesaid,
such person shall be punishable with fine which may extend to
E rupees one crore as may be determined by the Commission.
(2) Without prejudice to the provisions of sub-section (1), the
Commission may also pass such other order as it deems fit.
xx xx xx

F 60. Act to have overriding effect. – The provisions of this Act
shall have effect notwithstanding anything inconsistent therewith
contained in any other law for the time being in force.
61. Exclusion of jurisdiction of civil courts. – No civil court
shall have jurisdiction to entertain any suit or proceeding in respect
G of any matter which the Commission or the Appellate Tribunal is
empowered by or under this Act to determine and no injunction
shall be granted by any court or other authority in respect of any
action taken or to be taken in pursuance of any power conferred
by or under this Act.

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COMPETITION COMMISSION OF INDIA v. BHARTI AIRTEL 551
LIMITED AND ORS. [A. K. SIKRI, J.]

62. Application of other laws not barred. – The provisions of A
this Act shall be in addition to, and not in derogation of, the provisions
of any other law for the time being in force.”
67. The aforesaid provisions would indicate that the Act deals
with three kinds of practices which are treated as anti-competitive and
are prohibited. These are: B
(a) where agreements are entered into by certain persons with a
view to cause an appreciable adverse effect on competition;
(b) where any enterprise or group of enterprises, which enjoys
dominant position, abuses the said dominant position; and
C
(c) regulating the combination of enterprises by means of mergers
or amalgamations to ensure that such mergers or amalgamations do not
become anti-competitive or abuse the dominant position which they can
attain.
The objective behind the Act and rationale in curbing the aforesaid D
anti-competitive practices was taken note of in Excel Crop Care Limited
v. Competition Commission of India and Another16 and we would
like to reproduce the following passages therefrom:
“21. In the instant case, we are concerned with the first type of
practices, namely, anti-competitive agreements. The Act, which
E
prohibits anti-competitive agreements, has a laudable purpose
behind it. It is to ensure that there is a healthy competition in the
market, as it brings about various benefits for the public at large
as well as economy of the nation. In fact, the ultimate goal of
competition policy (or for that matter, even the consumer policies)
is to enhance consumer well-being. These policies are directed at F
ensuring that markets function effectively. Competition policy
towards the supply side of the market aims to ensure that
consumers have adequate and affordable choices. Another purpose
in curbing anti-competitive agreements is to ensure “level playing
field” for all market players that helps markets to be competitive.
G
It sets “rules of the game” that protect the competition process
itself, rather than competitors in the market. In this way, the pursuit
of fair and effective competition can contribute to improvements
in economic efficiency, economic growth and development of
16
(2017) 8 SCC 47 H
552 SUPREME COURT REPORTS [2018] 14 S.C.R.

A consumer welfare. How these benefits accrue is explained in the
ASEAN Regional Guidelines on Competition Policy, in the following
manner:
“2.2. Main Objectives and Benefits of Competition Policy
2.2.1.1. Economic efficiency: Economic efficiency refers to
B the effective use and allocation of the economy’s resources.
Competition tends to bring about enhanced efficiency, in both
a static and a dynamic sense, by disciplining firms to produce
at the lowest possible cost and pass these cost savings on to
consumers, and motivating firms to undertake research and
C development to meet customer needs.
2.2.1.2. Economic growth and development: Economic
growth—the increase in the value of goods and services
produced by an economy—is a key indicator of economic
development. Economic development refers to a broader
D definition of an economy’s well-being, including employment
growth, literacy and mortality rates and other measures of
quality of life. Competition may bring about greater economic
growth and development through improvements in economic
efficiency and the reduction of wastage in the production of
goods and services. The market is therefore able to more rapidly
E reallocate resources, improve productivity and attain a higher
level of economic growth. Over time, sustained economic
growth tends to lead to an enhanced quality of life and greater
economic development.
2.2.1.3. Consumer Welfare: Competition policy contributes to
F economic growth to the ultimate benefit of consumers, in terms
of better choice (new products), better quality and lower prices.
Consumer welfare protection may be required in order to
redress a perceived imbalance between the market power of
consumers and producers. The imbalance between consumers
G and producers may stem from market failures such as
information asymmetries, the lack of bargaining position towards
producers and high transaction costs. Competition policy may
serve as a complement to consumer protection policies to
address such market failures.”

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COMPETITION COMMISSION OF INDIA v. BHARTI AIRTEL 553
LIMITED AND ORS. [A. K. SIKRI, J.]

22. The aforesaid Guidelines also spell out few more benefits of A
such laws incorporating competition policies by highlighting the
following advantages:
“2.2.2. In addition, competition policy is also beneficial to
developing countries. Due to worldwide deregulation,
privatisation and liberalisation of markets, developing countries B
need a competition policy, in order to monitor and control the
growing role of the private sector in the economy so as to
ensure that public monopolies are not simply replaced by private
monopolies.
2.2.3. Besides contributing to trade and investment policies, C
competition policy can accommodate other policy objectives
(both economic and social) such as the integration of national
markets and promotion of regional integration, the promotion
or protection of small businesses, the promotion of technological
advancement, the promotion of product and process innovation,
the promotion of industrial diversification, environment D
protection, fighting inflation, job creation, equal treatment of
workers according to race and gender or the promotion of
welfare of particular consumer groups.
In particular, competition policy may have a positive impact on
employment policies, reducing redundant employment (which E
often results from inefficiencies generated by large incumbents
and from the fact that more dynamic enterprises are prevented
from entering the market) and favouring jobs creation by new
efficient competitors.
2.2.4. Competition policy complements trade policy, industrial F
policy and regulatory reform. Competition policy targets
business conduct that limits market access and which reduces
actual and potential competition, while trade and industrial
policies encourage adjustment to the trade and industrial
structures in order to promote productivity-based growth and G
regulatory reform eliminates domestic regulation that restricts
entry and exit in the markets. Effective competition policy can
also increase investor confidence and prevent the benefits of
trade from being lost through anti-competitive practices. In
this way, competition policy can be an important factor in
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554 SUPREME COURT REPORTS [2018] 14 S.C.R.

A enhancing the attractiveness of an economy to foreign direct
investment, and in maximising the benefits of foreign
investment.”
23. In fact, there is broad empirical evidence supporting the
proposition that competition is beneficial for the economy.
B Economists agree that it has an important role to play in improving
productivity and, therefore, the growth prospects of an economy.
It is achieved in the following manner:
“International Competition Network — Economic Growth
and Productivity
C Competition contributes to increased productivity through:
Pressure on firms to control costs—In a competitive
environment, firms must constantly strive to lower their
production costs so that they can charge competitive prices,
and they must also improve their goods and services so that
D they correspond to consumer demands.
Easy market entry and exit—Entry and exit of firms
reallocates resources from less to more efficient firms. Overall
productivity increases when an entrant is more efficient than
the average incumbent and when an existing firm is less efficient
E than the average incumbent. Entry—and the threat of entry—
incentivises firms to continuously improve in order not to lose
market share to or be forced out of the market by new entrants.
Encouraging innovation—Innovation acts as a strong driver
of economic growth through the introduction of new or
F substantially improved products or services and the development
of new and improved processes that lower the cost and increase
the efficiency of production. Incentives to innovate are affected
by the degree and type of competition in a market.
Pressure to improve infrastructure—Competition puts
G pressure on communities to keep local producers competitive
by improving roads, bridges, docks, airports and
communications, as well as improving educational opportunities.
Benchmarking—Competition also can contribute to increased
productivity by creating the possibility of benchmarking. The
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COMPETITION COMMISSION OF INDIA v. BHARTI AIRTEL 555
LIMITED AND ORS. [A. K. SIKRI, J.]

productivity of a monopolist cannot be measured against rivals A
in the same geographic market, but a dose of competition
quickly will expose inferior performance. A monopolist may
be content with mediocre productivity but a firm battling in a
competitive market cannot afford to fall behind, especially if
the investment community is benchmarking it against its rivals.”
B
24. Productivity is increased through competition by putting
pressure on firms to control costs as the producers strive to lower
their production costs so that they can charge competitive prices.
It also improves the quality of their goods and services so that
they correspond to consumers’ demands.
C
25. Competition law enforcement deals with anti-competitive
practices arising from the acquisition or exercise of undue market
power by firms that result in consumer harm in the forms of higher
prices, lower quality, limited choices and lack of innovation.
Enforcement provides remedies to avoid situations that will lead
to decreased competition in markets. Effective enforcement is D
important not only to sanction anti-competitive conduct but also to
deter future anti-competitive practices.
26. When we recognise that competition has number of benefits,
it clearly follows that cartels or anti-competitive agreements cause
harm to consumers by fixing prices, limiting outputs or allocating E
markets. Effective enforcement against such practices has direct
visible effects in terms of reduced prices in the market and this is
also supported by various empirical studies.
27. Keeping in view the aforesaid objectives that need to be
achieved, Indian Parliament enacted the Competition Act, 2002. F
Need to have such a law became all the more important in the
wake of liberalisation and privatisation as it was found that the
law prevailing at that time, namely, Monopolies and Restrictive
Trade Practices Act, 1969 was not equipped adequately enough
to tackle the competition aspects of the Indian economy. The law G
enforcement agencies, which include CCI and Compat, have to
ensure that these objectives are fulfilled by curbing anti-competitive
agreements.

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556 SUPREME COURT REPORTS [2018] 14 S.C.R.

A 28. Once the aforesaid purpose sought to be achieved is kept in
mind, and the same is applied to the facts of this case after finding
that the anti-competitive conduct of the appellants continued after
coming into force of provisions of Section 3 of the Act as well, the
argument predicated on retrospectivity pales into insignificance.
B 29. One has to keep in mind the aforesaid objective which the
legislation in question attempts to subserve and the mischief which
it seeks to remedy. As pointed out above, Section 18 of the Act
casts an obligation on CCI to “eliminate” anti-competitive practices
and promote competition, interests of the consumers and free trade.
It was rightly pointed out by Mr Neeraj Kishan Kaul, the learned
C Additional Solicitor General, that the Act is clearly aimed at
addressing the evils affecting the economic landscape of the country
in which interest of the society and consumers at large is directly
involved. This is so eloquently emphasised by this Court in
Competition Commission of India v. SAIL in the following
D manner: (SCC pp. 755-56 & 794, paras 6, 8-10 & 125)
“6. As far as the objectives of competition laws are concerned,
they vary from country to country and even within a country
they seem to change and evolve over the time. However, it
will be useful to refer to some of the common objectives of
E competition law. The main objective of competition law is to
promote economic efficiency using competition as one of the
means of assisting the creation of market responsive to
consumer preferences. The advantages of perfect competition
are threefold: allocative efficiency, which ensures the effective
allocation of resources, productive efficiency, which ensures
F that costs of production are kept at a minimum and dynamic
efficiency, which promotes innovative practices. These factors
by and large have been accepted all over the world as the
guiding principles for effective implementation of competition
law.
G xx xx xx
8. The Bill sought to ensure fair competition in India by
prohibiting trade practices which cause appreciable adverse
effect on the competition in market within India and for this
purpose establishment of a quasi-judicial body was considered
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COMPETITION COMMISSION OF INDIA v. BHARTI AIRTEL 557
LIMITED AND ORS. [A. K. SIKRI, J.]

essential. The other object was to curb the negative aspects of A
competition through such a body, namely, “the Competition
Commission of India” (for short “the Commission”) which has
the power to perform different kinds of functions, including
passing of interim orders and even awarding compensation and
imposing penalty. The Director General appointed under Section
B
16(1) of the Act is a specialised investigating wing of the
Commission. In short, the establishment of the Commission
and enactment of the Act was aimed at preventing practices
having adverse effect on competition, to protect the interest of
the consumer and to ensure fair trade carried out by other
participants in the market in India and for matters connected C
therewith or incidental thereto.
9. The various provisions of the Act deal with the establishment,
powers and functions as well as discharge of adjudicatory
functions by the Commission. Under the scheme of the Act,
this Commission is vested with inquisitorial, investigative, D
regulatory, adjudicatory and to a limited extent even advisory
jurisdiction. Vast powers have been given to the Commission
to deal with the complaints or information leading to invocation
of the provisions of Sections 3 and 4 read with Section 19 of
the Act. In exercise of the powers vested in it under Section
64, the Commission has framed regulations called the E
Competition Commission of India (General) Regulations, 2009
(for short “the Regulations”).
10. The Act and the Regulations framed thereunder clearly
indicate the legislative intent of dealing with the matters related
to contravention of the Act, expeditiously and even in a time- F
bound programme. Keeping in view the nature of the
controversies arising under the provisions of the Act and larger
public interest, the matters should be dealt with and taken to
the logical end of pronouncement of final orders without any
undue delay. In the event of delay, the very purpose and object G
of the Act is likely to be frustrated and the possibility of great
damage to the open market and resultantly, country’s economy
cannot be ruled out.”

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558 SUPREME COURT REPORTS [2018] 14 S.C.R.

A 68. It is for the aforesaid reason that the CCI is entrusted with
duties, powers and functions to deal with three kinds of anti-competitive
practices mentioned above. The purpose is to eliminate such practices
which are having adverse effect on the competition, to promote and
sustain competition and to protect the interest of the consumers and
ensure freedom of trade, carried on by the other participants, in India.
B
For the purpose of conducting such an inquiry, the CCI is empowered to
call any person for rendering assistance and/or produce the records/
material for arriving at even the prima facie opinion. The regulations
also empower the CCI to hold conferences with the concerned persons/
parties, including their advocates/authorised persons.
C 69. It is also relevant to mention at this stage that while inquiring
into any alleged contravention and determining whether any agreement
has an appreciable adverse effect on competition, factors which are to
be taken into consideration are mentioned in sub-section (3) of Section
19. These include creation of barriers to new entrants in the market,
D driving existing competitors out of the market and foreclosure of
competition by hindering entry into the market. All these activities have
connection with the ‘market’. The word ‘market’ has reference to
‘relevant market’. As per sub-section (5) of Section 19, such relevant
market can be relevant geographic market or relevant product market.
In the present case, we are concerned with the relevant product market,
E viz. telecommunication market. Sub-section (7) of Section 19 enumerates
the factors which are to be kept in mind while determining the relevant
product market.
70. Market definition is a tool to identify and define the boundaries
of competition between firms. It serves to establish the framework within
F which the competition policy is applied by the Commission. The main
purpose of market definition is to identify in a systematic way the
competitive constraints that the undertakings involved face. The objective
of defining a market in both its product and geographic dimension is to
identify those actual competitors of the undertakings involved that are
G capable of constraining those undertakings behaviour and of preventing
them from behaving independently of effective competitive pressure.
Therefore, the purpose of defining the ‘relevant market’ is to assess
with identifying in a systematic way the competitive constraints that
undertakings face when operating in a market. This is the case in
particular for determining if undertakings are competitors or potential
H
COMPETITION COMMISSION OF INDIA v. BHARTI AIRTEL 559
LIMITED AND ORS. [A. K. SIKRI, J.]

competitors and when assessing the anti-competitive effects of conduct A
in a market. The concept of relevant market implies that there could be
an effective competition between the products which form part of it and
this presupposes that there is a sufficient degree of interchangeability
between all the products forming part of the same market insofar as
specific use of such product is concerned. In essence, it is the notion of
B
‘power over the market’ which is the key to analyse many competitive
issues.
71. It is an admitted position that in the instant case we are dealing
with the telecom market, which is the relevant market. An interesting
feature is that this telecom market is also regulated by the statutory
regime contained in the TRAI Act. Under the said Act, TRAI is established C
as a regulator which exercises control/supervision and also provides
guidance to the telecom/mobile market. This statutory body is required
to function as per the provisions of the TRAI Act as well as the Rules
and Regulations framed thereunder. Additionally, the telecom companies
are also governed by licence agreements entered into between the Central D
Government and such service providers, for providing telephone/
telecommunication services to the customers/subscribers. At this stage,
therefore, we take note of the relevant provisions of the TRAI Act:
“11. Functions of Authority. – (1) Notwithstanding anything
contained in the Indian Telegraph Act, 1885 (13 of 1885), the E
functions of the Authority shall be to –
(a) make recommendations, either suo moto or on a request from
the licensor, on the following matters, namely:
xx xx xx
F
(iv) measures to facilitate competition and promote efficiency in
the operation of telecommunication services so as to facilitate
growth in such services;
xx xx xx
(b) discharge the following functions, namely:– G
(i) ensure compliance of terms and conditions of licence;
(ii) notwithstanding anything contained in the terms and
conditions of the licence granted before the commencement
of the Telecom Regulatory Authority of India (Amendment)
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560 SUPREME COURT REPORTS [2018] 14 S.C.R.

A Act, 2000, fix the terms and conditions of inter-connectivity
between the service providers;
(iii) ensure technical compatibility and effective inter-connection
between different service providers;
(iv) regulate arrangement amongst service providers of sharing
B their revenue derived from providing telecommunication
services;
(v) lay-down the standards of quality of service to be provided
by the service providers and ensure the quality of service and
conduct the periodical survey of such service provided by the
C service providers so as to protect interest of the consumers of
telecommunication service;
(vi) lay-down and ensure the time period for providing local
and long distance circuits of telecommunication between
different service providers;
D
(vii) maintain register of interconnect agreements and of all
such other matters as may be provided in the regulations;
(viii) keep register maintained under clause (vii) open for
inspection to any member of public on payment of such fee
and compliance of such other requirement as may be provided
E
in the regulations;
(ix) ensure effective compliance of universal service
obligations;
(c) levy fees and other charges at such rates and in respect of
F such services as may be determined by regulations;
(d) perform such other functions including such administrative
and financial functions as may be entrusted to it by the Central
Government or as may be necessary to carry out the provisions
of this Act:
G Provided that the recommendations of the Authority specified in
clause (a) of this sub-section shall not be binding upon the Central
Government.
xx xx xx

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COMPETITION COMMISSION OF INDIA v. BHARTI AIRTEL 561
LIMITED AND ORS. [A. K. SIKRI, J.]

14. Establishment of Appellate Tribunal. – The Central A
Government shall, by notification, establish an Appellate Tribunal
to be known as the Telecom Disputes Settlement and Appellate
Tribunal to –
(a) adjudicate any dispute –
(i) between a licensor and a licensee; B

(ii) between two or more service providers;
(iii) between a service provider and a group of consumers:
Provided that nothing in this clause shall apply in respect of
matters relating to – C
(A) the monopolistic trade practice, restrictive trade practice
and unfair trade practice which are subject to the jurisdiction
of the Monopolies and Restrictive Trade Practices Commission
established under sub-section (1) of section 5 of the Monopolies
and Restrictive Trade Practices Act, 1969 (54 of 1969); D
(B) the complaint of an individual consumer maintainable before
a Consumer Disputes Redressal Forum or a Consumer Disputes
Redressal Commission or the National Consumer Redressal
Commission established under section 9 of the Consumer
Protection Act, 1986 (68 of 1986); E
(C) dispute between telegraph authority and any other person
referred to in sub-section (1) of section 7B of the Indian
Telegraph Act, 1885 (13 of 1885);
(b) hear and dispose of appeal against any direction, decision or
order of the Authority under this Act. F

xx xx xx
16. Procedure and powers of Appellate Tribunal. – (1) The
Appellate Tribunal shall not be bound by the procedure laid down
by the Code of Civil Procedure, 1908 (5 of 1908), but shall be G
guided by the principles of natural justice and, subject to the other
provisions of this Act, the Appellate Tribunal shall have powers to
regulate its own procedure.

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562 SUPREME COURT REPORTS [2018] 14 S.C.R.

A (2) The Appellate Tribunal shall have, for the purposes of
discharging the functions under this Act, the same powers as are
vested in a civil court under the Code of Civil Procedure, 1908 (5
of 1908), while trying a suit, in respect of the following matters,
namely:–
B (a) summoning and enforcing the attendance of any person
and examining him on oath;
(b) requiring the discovery and production of documents;
(c) receiving evidence on affidavits;

C (d) subject to the provisions of section 123 and 124 of the
Indian Evidence Act, 1872 (1 of 1872), requisitioning any public
record or document or a copy of such record or document,
from any office;
(e) issuing commissions for the examination of witnesses or
D documents;
(f) reviewing its decisions;
(g) dismissing an application for default or deciding it, ex parte;
(h) setting aside any order of dismissal of any application for
default or any order passed by it, ex parte; and
E
(i) any other matter which may be prescribed.
(3) Every proceeding before the Appellate Tribunal shall be
deemed to be a judicial proceeding within the meaning of sections
193 and 228, and for the purposes of section 196 of the Indian
F Penal Code (45 of 1860) and the Appellate Tribunal shall be
deemed to be a civil court for the purposes of section 195 and
Chapter XXVI of the Code of Criminal Procedure, 1973 (2 of
1974).”
72. Other provisions in the telecom sector which are relevant for
G the purposes of these appeals are taken note of by the High Court as
under:
“Telecommunication laws binds all

H
COMPETITION COMMISSION OF INDIA v. BHARTI AIRTEL 563
LIMITED AND ORS. [A. K. SIKRI, J.]

19. The relevant licenses A
Unified License (UL) – The UL issued by Department of
Telecommunications, Government of India (“DoT”) for providing
telecommunication services on a pan India basis. Licence under
Section 4 of Indian Telegraph Act, 1885 therefore they become
Telecom Service Provider (“TSP”). Relevant clauses of the UL B
(UASL) are -
(a) Clause 16 of Part-I: Other conditions: The licensee is bound
by all TRAI Orders/Directions/Reglations;
(b) Clause 27 of Part-I: Network Interconnnection, particularly,
Clause 27.4, which requires a licensee to interconnect subject to C
compliance with prevailing regulations and determinations issued
by TRAI, and contemplates the execution of ICAs to establish
interconnection in sufficient capacity and number to enable
transmission and reception of messages between the
interconnected systems; D
(c) Clause 29 of Part-I, requiring a licensee to ensure QoS standards
as may be prescribed by DoT/TRAI. Specifically, Clause 29.4,
empowers DoT/TRAI to evaluate QoS parameters prior to grant
of permission for commencement of services; and
(d) Clause 6.2 of Part-II, which requires a licensee to provide E
interconnection to all TSPs to ensure that calls are completed to
all destinations.
Inter-connection Agreements
20. Similar separate Interconnection Agreements (ICAs) are
F
executed between the parties. The relevant clauses of ICAs are
as under:
Clause 2.4: “...RJIL will be required to establish Interconnection
at the Switches of IDEA as listed in Schedule I. In addition to
these specified locations, the Parties may further agree to
interconnect at an additional location(s) as mutually agreed to G
by and between the parties during the term of this
Agreement...”
Clause 5.7: “...At the end of two years, the Parties shall convert
the total E1s existing at the POIs into one-way E1s for the
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564 SUPREME COURT REPORTS [2018] 14 S.C.R.

A Outgoing Traffic of each Party on the basis of the traffic ratio
existing 3 months prior to the expiry of the initial period of two
years. These E1s shall thereafter be continued as one-way
E1s for the remaining term of the Agreement at the cost of
RJIL...”
B Clause 9.1: “...A minimum notice of 4 weeks has to be given
by either Party for augmentations of Interconnect Links...”
Clause 9.2: “...Augmentation shall be completed within 90 days
of receipt of requisite charges specified in Schedule 2 from
RJIL...”
C Clause 9.3: “...Any request for augmentation of capacity shall
be in writing with Performance reports as prescribed in
Schedule 4...”
Clause 9.4: “...Traffic measurements for 7 days shall be taken
by both the parties during agreed busy route hours, every 6
D months after commencement of traffic at the POIs to determine
further capacity requirements...”
Clause 9.5: “...RJIL shall provide a forecast in writing in
advance for its requirement of port capacity for Telephony
Traffic for the next 6 months to enable IDEA to dimension the
E required capacity in its network...”
21. The relevant clauses of the ICAs are:
(a) Clause 2 makes clear that the ICA will be applicable and
in effect from the date of execution;
F (b) Clause 2.10 makes clear that the interconnection facilities
at each POI will conform to the applicable QoS standards
prescribed by TRAI;
(c) Clause 3 – Terms and Amendments – again makes clear
that the ICA becomes applicable, effective and operational
G from the date of execution and is valid until both parties hold a
valid license for providing access services;
(d) Clause 4 – Applicability and Providing Services – reiterates
that the ICA becomes applicable on signing and is subject to
the terms and conditions of the telecom licence;
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COMPETITION COMMISSION OF INDIA v. BHARTI AIRTEL 565
LIMITED AND ORS. [A. K. SIKRI, J.]

(e) Clause 5.2 specifically provides that for the initial two A
years, provision and augmentation of transmission links shall
be at the cost of RJIL;
(f) Clause 5.7 contemplates conversion of two-way E1s into
one-way E1s only after two years, which in other words mean
that for two years all E1s must be two-way E1s; B
(g) Clause 9 provides modalities for enhancement of ports;
and
(h) Clause 10.7 again reiterates that Idea is bound to maintain
QoS standards prescribed by TRAI.
C
22. Quality of Service Regulations, 2009
Quality of Service Regulations (“QoS Regulations, 2009”)
issued by TRAI under Section 36 read with Section 11 of the
TRAI Act. Clause 5Iiv) and Clause 14, as relevant, are reproduced
as under: D
(a) Clause 5(iv) prescribes that the congestion at each individual
POI cannot exceed 0.5% over a period of one month (no more
than 5 out of every 100 calls can fail).
(b) Clause 14 provides that in the event of any doubt regarding
interpretation of any of the provisions of the QoS regulations, E
the view of the TRAI shall be final and binding.
23. The relevant clauses of the Standards of Quality of Service
of Basic Telephone Service (wireline) and Cellular Mobile
Telephone Service Regulations, 2009 includes Cellular Mobile
Telephone Services. The terms “Point of Interconnection (POI)”, F
“Quality of Service (QoS)”, “Service Provider, Telecommunication
services” have been defined in the Regulations. The term POI
congestion is also described in 3.12 and 4.7 of POI.”
73. Some of the features which govern the telecommunication
industry and noted by the High Court may also be captured at this stage. G
These are:
(a) To protect the interest of the service providers and consumers
of the telecom sector and to permit and ensure technical compatibility
and effective inter-relationship between different service providers and
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566 SUPREME COURT REPORTS [2018] 14 S.C.R.

A for ensuring compliance of licence conditions by all the service providers,
TRAI was constituted under the Telecom Regulatory Authority of India
Act, 1997. TRAI is a recommendatory/advisory and regulatory body
discharging the functions envisaged under sub-section (1) of Section 11
of the said Act. TRAI, inter alia, is charged with ensuring fair
competition amongst service providers, including fixing the terms and
B
conditions of entire activity between the service providers and laying
down the standards of Quality of Service (QoS) to be provided by each
service provider. In exercise of its functions, TRAI has issued detailed
Regulations for telecom services, including fixation and revision of tariffs
(Tariff Order), fixation of Inter-connect Usage Charges (IUC),
C prescription of quality of service standards, etc.
(b) The Telecom Service Providers, which include the respondents
as well as RJIL, provide telecommunication access service and are PAN
India Telecom Service Providers. They are governed by the Cellular
Mobile Telephone Service (CMTS)/ Unified Access Service Licence
D (UASL) issued by the Telecommunications Department, Government
of India under section 4 of the Telegraph Act.
(c) The Central Government has the exclusive privilege of
establishing, maintaining and working telegraphs under the Telegraph
Act and the Central Government is authorised to grant licence on such
E terms and conditions and in consideration of such payment as it thinks fit
to any person to establish, maintain or work as telegraph within any part
of the country. By virtue of Section 4 of the Telegraph Act, a service
provider is duty bound to enter into a licence agreement with the former
for unified licence, with authorisation for provision of services, as per
the terms and conditions prescribed in the Schedule. As a condition of
F the said licence, the licensee agrees and unequivocally undertakes to
fully comply with the terms and conditions stipulated in the licence
agreement without any deviation or reservation of any kind. The licence
is governed by the provisions of the Telegraph Act, the Indian Wireless
Telegraphy Act, 1933, the TRAI Act and the Information Technology
G Act, 2000, as modified or regulated from time to time.
74. In order to ensure that there is smooth interconnectivity and a
consumer who is the subscriber of mobile phone of one service provider,
say for e.g. Vodafone, and wants to make call to a mobile phone of his
friend which is provided by another service provider, say Idea Cellular,
H the unified licenses put an obligation on all these licensees to interconnect
COMPETITION COMMISSION OF INDIA v. BHARTI AIRTEL 567
LIMITED AND ORS. [A. K. SIKRI, J.]

with each other on the POI. This is so mentioned in Clause 27.4 of Part A
I of the Schedule to the unified licence. Such interconnectivity of POI is
subject to compliance of regulation/directions issued by TRAI. The
interconnection agreement, inter alia, provides for the following clauses:
(a) to meet all reasonable demand for the transmission and
reception of messages between the interconnect systems; B
(b) to establish and maintain such one or more POIs as are
reasonably required and are of sufficient capacity and in sufficient
numbers to enable transmission and reception of the messages by means
of applicable systems; and
(c) to connect and keep connected to the applicable systems. C

Some of the other clauses of the interconnection agreement are
as follows:
A minimum four weeks’ written notice has to be given by either
party for augmentation of interconnect links. D
Augmentation shall be completed within 90 days of receipt of
requisite charges specified in the Schedule.
Either party shall provide a forecast in writing, in advance for
its requirements of port capacity for “Telephony Traffic” for
the next six months to enable the other party to dimension the E
required capacity in its network.
The interconnection tests for reach and every interface will be
carried out by mutual arrangement between signatories of the
agreement.
By virtue of the licence, the licensee is obligated to ensure quality F
of service as prescribed by the licensor or TRAI and failure on their part
to adhere to the quality of service stipulated by TRAI would make the
licensor liable to be treated for breach of the terms and conditions of the
licence.
In order to render effective services, it is mandatory for the licensee G
to interconnect/provide POIs to all eligible telecom service providers to
ensure that calls are completed to all destinations and interconnection
agreement is entered into between the different service providers which
mandates each of the party to the agreement to provide to the other
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568 SUPREME COURT REPORTS [2018] 14 S.C.R.

A interconnection traffic carriage and all the technical and operational quality
service and time lines, i.e. the equivalent to that which the party provides
to itself. The interconnection agreement separately entered into different
service providers is based on the format prescribed in the
Telecommunication Interconnection (Reference Interconnect Offer)
Regulations, 2002.
B
75. POI is defined in the agreement, in the following words:
“POI are those points between two network operators which allow
voice call originating from the work of one operator to terminate
on the network by other operator.”
C 76. We may also note that on June 07, 2005 a direction was issued
under Section 13 read with sub-clause (i) to (v) of sub-clause (b) of
Section 11 of the TRAI Act, which provides as follows:
“In exercise of the powers vested in it under section 13 read with
section 11(1)(b)(i), (ii), (iii), (iv) and (v) of the Telecom Regulatory
D Authority of India Act, 1997 and in order to ensure compliance of
terms and conditions of license and effective interconnection
between service providers and to protect consumer interest, the
Authority hereby directs all service providers to provide
interconnection on the request of the interconnection seeker within
E 90 days of the applicable payments made by the interconnection
seeker. Further there is a direction issued by the Government of
India, Ministry of Telecommunication dated 28th August, 2005 by
which directions have been issued to provide data of subscribers
in the prescribed format.”

F 77. From the aforesaid analysis of the scheme contained in the
TRAI Act, it becomes clear that the functioning of the telecom companies
which are granted licence under Section 4 of the Telegraph Act is
regulated by the provisions contained in the TRAI Act. TRAI is a
regulator which regulates the telecom industry, which is a statutory body
created under the TRAI Act. The necessity of such regulators has been
G emphasised by a Constitution Bench of this Court in Modern Dental
College and Research Centre and Others v. State of Madhya Pradesh
and Others17 in the following words:
“Need for regulatory mechanism
17
H (2016) 7 SCC 353
COMPETITION COMMISSION OF INDIA v. BHARTI AIRTEL 569
LIMITED AND ORS. [A. K. SIKRI, J.]

87. Regulatory mechanism, or what is called regulatory economics, A
is the order of the day. In the last 60-70 years, economic policy of
this country has travelled from laissez faire to mixed economy to
the present era of liberal economy with regulatory regime. With
the advent of mixed economy, there was mushrooming of the
public sector and some of the key industries like aviation, insurance,
B
railways, electricity/power, telecommunication, etc. were
monopolised by the State. Licence/permit raj prevailed during this
period with strict control of the Government even in respect of
those industries where private sectors were allowed to operate.
However, Indian economy experienced major policy changes in
early 90s on LPG Model i.e. liberalisation, privatisation and C
globalisation. With the onset of reforms to liberalise the Indian
economy, in July 1991, a new chapter has dawned for India. This
period of economic transition has had a tremendous impact on the
overall economic development of almost all major sectors of the
economy.
D
88. When we have a liberal economy which is regulated by the
market forces (that is why it is also termed as market economy),
prices of goods and services in such an economy are determined
in a free price system set up by supply and demand. This is often
contrasted with a planned economy in which a Central Government
determines the price of goods and services using a fixed price E
system. Market economies are also contrasted with mixed
economy where the price system is not entirely free, but under
some government control or heavily regulated, which is sometimes
combined with State led economic planning that is not extensive
enough to constitute a planned economy. F
89. With the advent of globalisation and liberalisation, though the
market economy is restored, at the same time, it is also felt that
market economies should not exist in pure form. Some regulation
of the various industries is required rather than allowing self-
regulation by market forces. This intervention through regulatory G
bodies, particularly in pricing, is considered necessary for the
welfare of the society and the economists point out that such
regulatory economy does not rob the character of a market
economy which still remains a market economy. Justification for
regulatory bodies even in such industries managed by private
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570 SUPREME COURT REPORTS [2018] 14 S.C.R.

A sector lies in the welfare of people. Regulatory measures are felt
necessary to promote basic well being for individuals in need. It is
because of this reason that we find regulatory bodies in all vital
industries like, insurance, electricity and power,
telecommunications, etc.”
B 78. Thus, with the advent of globalisation/liberalisation leading to
free market economy, regulators in respect of each sector have assumed
great significance and importance. It becomes their bounden duty to
ensure that such a regulator fulfils the objectives enshrined in the Act
under which a particular regulator is created. Insofar as the telecom
sector is concerned, the TRAI Act itself mentions the objective which it
C seeks to achieve. It not only exercises control/supervision over the
telecom service providers/ licensees, TRAI is also supposed to provide
guidance to the telecom/mobile market. ‘Introduction’ to the TRAI Act
itself mentions that due to tremendous growth in the services it was
considered essential to regulate the telecommunication services by a
D regulatory body which should be fully empowered to control the services,
in the best interest of the country as well as the service providers.
Likewise, the Statement of Objects and Reasons of this Act, inter alia,
stipulates as under:
“1. In the context of the National Telecom Policy, 1994, which
E amongst other things, stresses on achieving the universal service,
bringing the quality of telecom services to world standards,
provisions of wide range of services to meet the customers demand
at reasonable price, and participation of the companies registered
in India in the area of basic as well as value added telecom services
as also making arrangements for protection and promotion of
F consumer interest and ensuring fair competition, there is a felt
need to separate regulatory functions from service providing
functions which will be in keeping with the general trend in the
world. In the multi-operator situation arising out of opening of
basic as well as value added services in which private operator
G will be competing with Government operators, there is a pressing
need for an independent telecom regulatory body for regulation
of telecom services for orderly and healthy growth of
telecommunication infrastructure apart from protection of
consumer interest.

H xx xx xx
COMPETITION COMMISSION OF INDIA v. BHARTI AIRTEL 571
LIMITED AND ORS. [A. K. SIKRI, J.]

4. The powers and functions of the Authority, inter alia, are.– A
(i) ensuring technical compatibility and effective inter-
relationship between different service providers;
(ii) regulation of arrangement amongst service providers of
sharing their revenue derived from providing telecommunication
services; B

(iii) ensuring compliance of licence conditions by all service
providers;
(iv) protection of the interest of the consumers of
telecommunication service; C
(v) settlement of disputes between service providers;
(vi) fixation of rates for providing telecommunication service
within India and outside India;
(vii) ensuring effective compliance of universal service
D
obligations.”
79. TRAI is, thus, constituted for orderly and healthy growth of
telecommunication infrastructure apart from protection of consumer
interest. It is assigned the duty to achieve the universal service which
should be of world standard quality on the one hand and also to ensure
that it is provided to the customers at a reasonable price, on the other E
hand. In the process, purpose is to make arrangements for protection
and promotion of consumer interest and ensure fair competition. It is
because of this reason that the powers and functions which are assigned
to TRAI are highlighted in the Statement of Objects and Reasons.
Specific functions which are assigned to TRAI, amongst other, including F
ensuring technical compatibility and effective inter-relationship between
different service providers; ensuring compliance of licence conditions
by all service providers; and settlement of disputes between service
providers.
80. In the instant case, dispute raised by RJIL specifically touches G
upon these aspects as the grievance raised is that the IDOs have not
given POIs as per the licence conditions resulting into non-compliance
and have failed to ensure inter se technical compatibility thereby. Not
only RJIL has raised this dispute, it has even specifically approached
TRAI for settlement of this dispute which has arisen between various
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572 SUPREME COURT REPORTS [2018] 14 S.C.R.

A service providers, namely, RJIL on the one hand and the IDOs on the
other, wherein COAI is also roped in. TRAI is seized of this particular
dispute.
81. It is a matter of record that before the TRAI, IDOs have
refuted the aforesaid claim of RJIL. Their submission is that not only
B required POIs were provided to RJIL, it is the RJIL which is in breach
as it was making unreasonable and excessive demand for POIs. It is
specifically pleaded by the IDOs that:
(i) RJIL raised its demand for POIs for the first time on June 21,
2016.
C (ii) In the letter dated June 21, 2016, it was admitted that RJIL
was in test phase.
(iii) There was no express mention of any commercial launch
date.

D (iv) As per the letter, immediately on commercial launch RJIL
would have a 22mn subscriber base for which number series was
already allotted.
(v) As per the DoT Circular dated August 29, 2005 test customers
are not considered as subscribers and test customers can only be
in the form of business partners. It was highlighted that problem,
E
if any, of congestion has been suffered on account of provisioning
of full-fledged services during test phase.
(vi) RJIL in its complaint before the TRAI was not considering
the period of 90 days as was prescribed in the Interconnection
Agreement. It was instead proceeding on the basis that the
F
demand for POIs should be met on an immediate basis.
(vii) There was several errors in the forecast made by RJIL.
(viii) The tables given by the RJIL are wrong as they take into
account its total demand at the end of nine months against what
G was actually provided.
82. Learned counsel appearing for the IDOs had also argued that
the first firm demand for provisioning of POIs was made by RJIL on
June 21, 2016. According to the IDOs, in that letter, RJIL had expressly
admitted that it was under test phase and had not commenced
H
COMPETITION COMMISSION OF INDIA v. BHARTI AIRTEL 573
LIMITED AND ORS. [A. K. SIKRI, J.]

‘commercial services’. RJIL had also stated that the demand for POIs A
was being made to ‘provide seemless connectivity to targeted subscribers’
as against ‘test consumers’. Their submission was that it was not
disclosed at all as to when RJIL was going to launch commercial services.
On the basis of the aforesaid stand taken by the IDOs, their argument is
that in the first instance it is the TRAI which is not only competent but B
more appropriate authority to consider these aspects as it is the TRAI
which is the specialised body going by the nature of dispute between the
parties, following aspects have to be determined by the TRAI:
(a) Whether IDOs were under any obligation to provide POIs
during test period?
C
(b) As per the letter dated June 21, 2016 from RJIL, when IDOs
were to commence provisioning of POIs to RJIL?
(c) Whether the demand for POIs made by RJIL were reasonable
or not?
(d) Whether there was any delay/denial at the end of Vodafone in D
provisioning of POIs?
(e) Whether the POIs were to be provided ‘immediately’ and
during ‘test phase’?
(f) Whether IDOs have provided sufficient number of POIs to E
RJIL in conformity with the licence conditions?
83. We are of the opinion that as the TRAI is constituted as an
expert regulatory body which specifically governs the telecom sector,
the aforesaid aspects of the disputes are to be decided by the TRAI in
the first instance. These are jurisdictional aspects. Unless the TRAI
F
finds fault with the IDOs on the aforesaid aspects, the matter cannot be
taken further even if we proceed on the assumption that the CCI has the
jurisdiction to deal with the complaints/information filed before it. It
needs to be reiterated that RJIL has approached the DoT in relation to
its alleged grievance of augmentation of POIs which in turn had informed
RJIL vide letter dated September 06, 2016 that the matter related to G
inter-connectivity between service providers is within the purview of
TRAI. RJIL thereafter approached TRAI; TRAI intervened and issued
show-cause notice dated September 27, 2016; and post issuance of show-
cause notice and directions, TRAI issued recommendations dated
October 21, 2016 on the issue of inter-connection and provisioning of
H
574 SUPREME COURT REPORTS [2018] 14 S.C.R.

A POIs to RJIL. The sectoral authorities are, therefore, seized of the
matter. TRAI, being a specialised sectoral regulator and also armed
with sufficient power to ensure fair, non-discriminatory and competitive
market in the telecom sector, is better suited to decide the aforesaid
issues. After all, RJIL’s grievance is that inter-connectivity is not provided
by the IDOs in terms of the licenses granted to them. TRAI Act and
B
Regulations framed thereunder make detailed provisions dealing with
intense obligations of the service providers for providing POIS. These
provisions also deal as to when, how and in what manner POIs are to be
provisioned. They also stipulate the charges to be realised for POIs that
are to be provided to another service provider. Even the consequences
C for breach of such obligations are mentioned.
84. We, therefore, are of the opinion that the High Court is right in
concluding that till the jurisdictional issues are straightened and answered
by the TRAI which would bring on record findings on the aforesaid
aspects, the CCI is ill-equipped to proceed in the matter. Having regard
D to the aforesaid nature of jurisdiction conferred upon an expert regulator
pertaining to this specific sector, the High Court is right in concluding
that the concepts of “subscriber”, “test period”, “reasonable demand”,
“test phase and commercial phase rights and obligations”, “reciprocal
obligations of service providers” or “breaches of any contract and/or
practice”, arising out of TRAI Act and the policy so declared, are the
E matters within the jurisdiction of the Authority/TDSAT under the TRAI
Act only. Only when the jurisdictional facts in the present matter as
mentioned in this judgment particularly in paras 56 and 82 above are
determined by the TRAI against the IDOs, the next question would
arise as to whether it was a result of any concerted agreement between
F the IDOs and COAI supported the IDOs in that endeavour. It would be
at that stage the CCI can go into the question as to whether violation of
the provisions of TRAI Act amounts to ‘abuse of dominance’ or ‘anti-
competitive agreements’. That also follows from the reading of Sections
21 and 21A of the Competition Act, as argued by the respondents.
G 85. The issue can be examined from another angle as well. If the
CCI is allowed to intervene at this juncture, it will have to necessarily
undertake an exercise of returning the findings on the aforesaid issues/
aspects which are mentioned in paragraph 82 above. Not only TRAI is
better equipped as a sectoral regulator to deal with these jurisdictional
aspects, there may be a possibility that the two authorities, namely, TRAI
H
COMPETITION COMMISSION OF INDIA v. BHARTI AIRTEL 575
LIMITED AND ORS. [A. K. SIKRI, J.]

on the one hand and the CCI on the other, arrive at a conflicting views. A
Such a situation needs to be avoided. This analysis also leads to the
same conclusion, namely, in the first instance it is the TRAI which should
decide these jurisdictional issues, which come within the domain of the
TRAI Act as they not only arise out of the telecom licenses granted to
the service providers, the service providers are governed by the TRAI
B
Act and are supposed to follow various regulations and directions issued
by the TRAI itself.
86. This takes us to the next level of the issue, viz. whether TRAI
has the exclusive jurisdiction to deal with matters involving anti-competitive
practices to the exclusion of CCI altogether because of the reason that
the matter pertains to telecom sector? C

87. The IDOs have argued that not only TRAI is an expert body
which can deal with these issues and has been assigned this function
specifically under the TRAI Act, even the anti-competitive aspects of
telecom sector are specifically assigned to the TRAI in the TRAI Act
itself. On that premise the submission is that the TRAI Act is a special D
legislation which prevails over the provisions of the Competition Act as
the Competition Act is general in nature. It is also argued that even if
the Competition Act is treated as a special statute, between the two
special statutes the TRAI Act would prevail as it is a complete code in
itself which regulates the telecom sector in its entirety, including the E
aspects of competition.
88. Such a submission, on a cursory glance, may appear to be
attractive. However, the matter cannot be examined by looking into the
provisions of the TRAI Act alone. Comparison of the regimes and
purpose behind the two Acts becomes essential to find an answer to this F
issue. We have discussed the scope and ambit of the TRAI Act in the
given context as well as the functions of the TRAI. No doubt, we have
accepted that insofar as the telecom sector is concerned, the issues
which arise and are to be examined in the context of the TRAI Act and
related regime need to be examined by the TRAI. At the same time, it
is also imperative that specific purpose behind the Competition Act is G
kept in mind. This has been taken note of and discussed in the earlier
part of the judgment. As pointed out above, the Competition Act frowns
the anti-competitive agreements. It deals with three kinds of practices
which are treated as anti-competitive and are prohibited. To recapitulate,
these are: H
576 SUPREME COURT REPORTS [2018] 14 S.C.R.

A (a) where agreements are entered into by certain persons with a
view to cause an appreciable adverse effect on competition;
(b) where any enterprise or group of enterprises, which enjoys
dominant position, abuses the said dominant position; and
(c) regulating the combination of enterprises by means of mergers
B or amalgamations to ensure that such mergers or amalgamations do not
become anti-competitive or abuse the dominant position which they can
attain.
89. The CCI is specifically entrusted with duties and functions,
and in the process empower as well, to deal with the aforesaid three
C kinds of anti-competitive practices. The purpose is to eliminate such
practices which are having adverse effect on the competition, to promote
and sustain competition and to protect the interest of the consumers and
ensure freedom of trade, carried on by other participants, in India. To
this extent, the function that is assigned to the CCI is distinct from the
D function of TRAI under the TRAI Act. Learned counsel for the
appellants are right in their submission that the CCI is supposed to find
out as to whether the IDOs were acting in concert and colluding, thereby
forming a cartel, with the intention to block or hinder entry of RJIL in the
market in violation of Section 3(3)(b) of the Competition Act. Also,
whether there was an anti-competitive agreement between the IDOs,
E using the platform of COAI. The CCI, therefore, is to determine whether
the conduct of the parties was unilateral or it was a collective action
based on an agreement. Agreement between the parties, if it was there,
is pivotal to the issue. Such an exercise has to be necessarily undertaken
by the CCI. In Haridas Exports, this Court held that where statutes
F operate in different fields and have different purposes, it cannot be said
that there is an implied repeal of one by the other. The Competition Act
is also a special statute which deals with anti-competition. It is also to
be borne in mind that if the activity undertaken by some persons is anti-
competitive and offends Section 3 of the Competition Act, the
consequences thereof are provided in the Competition Act. Section 27
G empowers the CCI to pass certain kinds of orders, stipulated in the said
provision, after inquiry into the agreements for abuse of dominant position.
The following kinds of orders can be passed by the CCI under this
provision:

H
COMPETITION COMMISSION OF INDIA v. BHARTI AIRTEL 577
LIMITED AND ORS. [A. K. SIKRI, J.]

“27. Orders by Commission after inquiry into agreements A
or abuse of dominant position. - Where after inquiry the
Commission finds that any agreement referred to in section 3 or
action of an enterprise in a dominant position, is in contravention
of section 3 or section 4, as the case may be, it may pass all or any
of the following orders, namely:—
B
(a) direct any enterprise or association of enterprises or person or
association of persons, as the case may be, involved in such
agreement, or abuse of dominant position, to discontinue and not
to re-enter such agreement or discontinue such abuse of dominant
position, as the case may be;
C
(b) impose such penalty, as it may deem fit which shall be not
more than ten per cent of the average of the turnover for the last
three preceding financial years, upon each of such person or
enterprises which are parties to such agreements or abuse:
Provided that in case any agreement referred to in D
section 3 has been entered into by a cartel, the Commission may
impose upon each producer, seller, distributor, trader or service
provider included in that cartel, a penalty of up to three times of its
profit for each year of the continuance of such agreement or ten
percent. of its turnover for each year of the continuance of such
agreement, whichever is higher. E

(c) repealed;
(d) direct that the agreements shall stand modified to the extent
and in the manner as may be specified in the order by the
Commission; F
(e) direct the enterprises concerned to abide by such other orders
as the Commission may pass and comply with the directions,
including payment of costs, if any;
(f) repealed;
(g) pass such other [order or issue such directions] as it may deem G
fit.
Provided that while passing orders under this section, if
the Commission comes to a finding, that an enterprise in
contravention to section 3 or section 4 of the Act is a member of
H
578 SUPREME COURT REPORTS [2018] 14 S.C.R.

A a group as defined in clause (b) of the Explanation to section 5
of the Act, and other members of such a group are also responsible
for, or have contributed to, such a contravention, then it may pass
orders, under this section, against such members of the group.
Moreover, it is within the exclusive domain of the CCI to find out
B as to whether a particular agreement will have appreciable adverse effect
on competition within the relevant market in India. For this purpose, CCI
is to take into consideration the provisions contained in the Competition
Act, including Section 29 thereof. Sections 45 and 46 also authorise the
CCI to impose penalties in certain situations.
C 90. Obviously, all the aforesaid functions not only come within the
domain of the CCI, TRAI is not at all equipped to deal with the same.
Even if TRAI also returns a finding that a particular activity was anti-
competitive, its powers would be limited to the action that can be taken
under the TRAI Act alone. It is only the CCI which is empowered to
deal with the same anti-competitive act from the lens of the Competition
D Act. If such activities offend the provisions of the Competition Act as
well, the consequences under that Act would also follow. Therefore,
contention of the IDOs that the jurisdiction of the CCI stands totally
ousted cannot be accepted. Insofar as the nuanced exercise from the
stand point of Competition Act is concerned, the CCI is the experienced
E body in conducting competition analysis. Further, the CCI is more likely
to opt for structural remedies which would lead the sector to evolve a
point where sufficient new entry is induced thereby promoting genuine
competition. This specific and important role assigned to the CCI cannot
be completely wished away and the ‘comity’ between the sectoral
regulator (i.e. TRAI) and the market regulator (i.e. the CCI) is to be
F maintained.
91. The conclusion of the aforesaid discussion is to give primacy
to the respective objections of the two regulators under the two Acts. At
the same time, since the matter pertains to the telecom sector which is
specifically regulated by the TRAI Act, balance is maintained by
G permitting TRAI in the first instance to deal with and decide the
jurisdictional aspects which can be more competently handled by it. Once
that exercise is done and there are findings returned by the TRAI which
lead to the prima facie conclusion that the IDOs have indulged in anti-
competitive practices, the CCI can be activated to investigate the matter
H
COMPETITION COMMISSION OF INDIA v. BHARTI AIRTEL 579
LIMITED AND ORS. [A. K. SIKRI, J.]

going by the criteria laid down in the relevant provisions of the Competition A
Act and take it to its logical conclusion. This balanced approach in
construing the two Acts would take care of Section 60 of the Competition
Act as well.
92. We, thus, do not agree with the appellants that CCI could
have dealt with this matter at this stage itself without availing the inquiry B
by TRAI. We also do not agree with the respondents that insofar as the
telecom sector is concerned, jurisdiction of the CCI under the Competition
Act is totally ousted. In nutshell, that leads to the conclusion that the
view taken by the High Court is perfectly justified. Even the argument
of the learned ASG is that the exercise of jurisdiction by the CCI to
investigate an alleged cartel does not impinge upon TRAI’s jurisdiction C
to regulate the industry in any way. It was submitted that the promotion
of competition and prevention of competitive behaviour may not be high
on the change of sectoral regulator which makes it prone to ‘regulatory
capture’ and, therefore, the CCI is competent to exercise its jurisdiction
from the stand point of the Competition Act. However, having taken D
note of the skillful exercise which the TRAI is supposed to carry out,
such a comment vis-a-vis TRAI may not be appropriate. No doubt, as
commented by the Planning Commission in its report of February, 2007,
a sectoral regulator, may not have an overall view of the economy as a
whole, which the CCI is able to fathom. Therefore, our analysis does
not bar the jurisdiction of CCI altogether but only pushes it to a later E
stage, after the TRAI has undertaken necessary exercise in the first
place, which it is more suitable to carry out.
B. Whether the writ petitions filed before the High Court
of Bombay were maintainable?
F
93. Here comes the scope of judicial interference under Article
226 of the Constitution. As per the RJIL as well as CCI, the High Court
could not have entertained the writ petition against an order passed under
Section 26(1) of the Competition Act which was a pure administrative
order and was only a prima facie view expressed therein, and did not
result in serious adverse consequences. It was submitted that the finding G
of the High Court that such an order was quasi-judicial order is not only
erroneous but it is contrary to the law laid down in the case of Steel
Authority of India Limited. The respondents, on the other hand, have
submitted that the judgment in the above case had no application in the
instant case as it did not deal with the sector that is regulated by a H
580 SUPREME COURT REPORTS [2018] 14 S.C.R.

A statutory authority. Moreover, such an order was quasi-judicial in nature
and cannot be treated as an administrative order since it was passed by
the CCI after collecting the detailed information from the parties and by
holding the conferences, calling material details, documents, affidavits
and by recording the opinion. It was submitted that judicial review against
such an order is permissible and it was open to the respondents to point
B
out that the complete material, as submitted by the respondents, was not
taken into consideration which resulted in an erroneous order, which had
adverse civil consequences inasmuch as the respondents were subjected
to further investigation by the Director General.
94. We may mention at the outset that in the case of Steel Authority
C of India Limited, nature of the order passed by the CCI under Section
26(1) of the Competition Act (here also we are concerned with an order
which is passed under Section 26(1) of the Competition Act) was gone
into. The Court, in no uncertain terms, held that such an order would be
an administrative order and not a quasi-judicial order. It can be discerned
D from paragraphs 94, 97 and 98 of the said judgment, which are as under:
“94. The Tribunal, in the impugned judgment, has taken the view
that there is a requirement to record reasons which can be express,
or, in any case, followed by necessary implication and therefore,
the authority is required to record reasons for coming to the
E conclusion. The proposition of law whether an administrative or
quasi-judicial body, particularly judicial courts, should record
reasons in support of their decisions or orders is no more res
integra and has been settled by a recent judgment of this Court in
CCT v. Shukla & Bros. [(2010) 4 SCC 785: (2010) 2 SCC (Cri)
1201 : (2010) 2 SCC (L&S) 133], wherein this Court was primarily
F concerned with the High Court dismissing the appeals without
recording any reasons. The Court also examined the practice and
requirement of providing reasons for conclusions, orders and
directions given by the quasi-judicial and administrative bodies.
xx xx xx
G
97. The above reasoning and the principles enunciated, which
are consistent with the settled canons of law, we would adopt
even in this case. In the backdrop of these determinants, we may
refer to the provisions of the Act. Section 26, under its different
sub-sections, requires the Commission to issue various directions,
H
COMPETITION COMMISSION OF INDIA v. BHARTI AIRTEL 581
LIMITED AND ORS. [A. K. SIKRI, J.]

take decisions and pass orders, some of which are even appealable A
before the Tribunal. Even if it is a direction under any of the
provisions and not a decision, conclusion or order passed on merits
by the Commission, it is expected that the same would be supported
by some reasoning. At the stage of forming a prima facie view, as
required under Section 26(1) of the Act, the Commission may not
B
really record detailed reasons, but must express its mind in no
uncertain terms that it is of the view that prima facie case exists,
requiring issuance of direction for investigation to the Director
General. Such view should be recorded with reference to the
information furnished to the Commission. Such opinion should be
formed on the basis of the records, including the information C
furnished and reference made to the Commission under the various
provisions of the Act, as aforereferred. However, other decisions
and orders, which are not directions simpliciter and determining
the rights of the parties, should be well reasoned analysing and
deciding the rival contentions raised before the Commission by
D
the parties. In other words, the Commission is expected to express
prima facie view in terms of Section 26(1) of the Act, without
entering into any adjudicatory or determinative process and by
recording minimum reasons substantiating the formation of such
opinion, while all its other orders and decisions should be well
reasoned. E
98. Such an approach can also be justified with reference to
Regulation 20(4), which requires the Director General to record,
in his report, findings on each of the allegations made by a party in
the intimation or reference submitted to the Commission and sent
for investigation to the Director General, as the case may be, F
together with all evidence and documents collected during
investigation. The inevitable consequence is that the Commission
is similarly expected to write appropriate reasons on every issue
while passing an order under Sections 26 to 28 of the Act.”
95. There is no reason to take a contrary view. Therefore, we G
are not inclined to refer the matter to a larger Bench for reconsideration.
96. It was, however, argued that since the case of Steel Authority
of India Limited was not dealing with the telecom sector, which is
regulated by the statutory regulator, namely, TRAI under the TRAI Act,
that judgment would not be applicable. Merely because the present H
582 SUPREME COURT REPORTS [2018] 14 S.C.R.

A case deals with the telecom sector would not change the nature of the
order that is passed by the CCI under Section 26(1) of the Competition
Act. However, it raises another dimension. Even if the order is
administrative in nature, the question raised before the High Court in the
writ petitions filed by the respondents touched upon the very jurisdiction
of the CCI. As is evident, the case set up by the respondents was that
B
the CCI did not have the jurisdiction to entertain any such request or
Information which was furnished by RJIL and two others. The question,
thus, pertained to the jurisdiction of the CCI to deal with such a matter
and in the process the High Court was called upon to decide as to whether
the jurisdiction of the CCI is entirely excluded or to what extent the CCI
C can exercise its jurisdiction in these cases when the matter could be
dealt with by another regulator, namely, the TRAI. When such
jurisdictional issues arise, the writ petition would clearly be maintainable
as held in Barium Chemicals Ltd. and Another v. Company Law
Board and Others18 and Carona Limited. In Carona Limited, this
Court held as under:
D
“26. The learned counsel for the appellant company submitted
that the fact as to “paid-up share capital” of rupees one crore or
more of a company is a “jurisdictional fact” and in absence of
such fact, the court has no jurisdiction to proceed on the basis that
the Rent Act is not applicable. The learned counsel is right. The
E fact as to “paid-up share capital” of a company can be said to be
a “preliminary” or “jurisdictional fact” and said fact would confer
jurisdiction on the court to consider the question whether the
provisions of the Rent Act were applicable. The question, however,
is whether in the present case, the learned counsel for the appellant
F tenant is right in submitting that the “jurisdictional fact” did not
exist and the Rent Act was, therefore, applicable.
27. Stated simply, the fact or facts upon which the jurisdiction of
a court, a tribunal or an authority depends can be said to be a
“jurisdictional fact”. If the jurisdictional fact exists, a court, tribunal
G or authority has jurisdiction to decide other issues. If such fact
does not exist, a court, tribunal or authority cannot act. It is also
well settled that a court or a tribunal cannot wrongly assume
existence of jurisdictional fact and proceed to decide a matter.
The underlying principle is that by erroneously assuming existence
18
H AIR 1967 SC 295
COMPETITION COMMISSION OF INDIA v. BHARTI AIRTEL 583
LIMITED AND ORS. [A. K. SIKRI, J.]

of a jurisdictional fact, a subordinate court or an inferior tribunal A
cannot confer upon itself jurisdiction which it otherwise does not
posses.
28. In Halsbury’s Laws of England (4th Edn.), Vol. 1, Para 55,
p. 61; Reissue, Vol. 1(1), Para 68, pp. 114-15, it has been stated:
“Where the jurisdiction of a tribunal is dependent on the B
existence of a particular state of affairs, that state of affairs
may be described as preliminary to, or collateral to the merits
of, the issue. If, at the inception of an inquiry by an inferior
tribunal, a challenge is made to its jurisdiction, the tribunal has
to make up its mind whether to act or not and can give a ruling C
on the preliminary or collateral issue; but that ruling is not
conclusive.”
The existence of a jurisdictional fact is thus a sine qua non or
condition precedent to the assumption of jurisdiction by a court or
tribunal. D
xx xx xx
36. It is thus clear that for assumption of jurisdiction by a court or
a tribunal, existence of jurisdictional fact is a condition precedent.
But once such jurisdictional fact is found to exist, the court or
tribunal has power to decide adjudicatory facts or facts in issue.” E
97. Thus, even when we do not agree with the approach of the
High Court in labeling the impugned order as quasi-judicial order and
assuming jurisdiction to entertain the writ petitions on that basis, for our
own and different reasons, we find that the High Court was competent
to deal with and decide the issues raised in exercise of its power under F
Article 226 of the Constitution. The writ petitions were, therefore,
maintainable.
C. Whether the High Court could give its findings on merits?
98. Once we hold that the order under Section 26(1) of the
Competition Act is administrative in nature and further that it was merely G
a prima facie opinion directing the Director General to carry the
investigation, the High Court would not be competent to adjudge the
validity of such an order on merits. The observations of the High Court
giving findings on merits, therefore, may not be appropriate.
H
584 SUPREME COURT REPORTS [2018] 14 S.C.R.

A 99. At the same time, since we are upholding the order of the
High Court on the aspect that the CCI could exercise jurisdiction only
after proceedings under the TRAI Act had concluded/attained finality,
i.e. only after the TRAI returns its findings on the jurisdictional aspects
which are mentioned above by us, the ultimate direction given by the
High Court quashing the order passed by the CCI is not liable to be
B
interfered with as such an exercise carried out by the CCI was premature.
The result of the discussion would be to dismiss these appeals, subject to
our observations on certain aspects. Ordered accordingly.

Devika Gujral Appeals disposed of.
C

D

E

F

G

H