Holding

A distribution licensee may lawfully condition the grant of a fresh electricity connection on the payment of the previous owner's arrears if such a condition is authorised by statutory regulations or the Electricity Supply Code, and the limitation in Section 56(2) does not bar civil recovery of those dues.

Summary

The Supreme Court examined a batch of appeals concerning whether electricity arrears of a previous owner can be recovered from a subsequent owner who acquired the premises through auction or other transfers. It held that the duty of a distribution licensee to supply electricity under Section 43 of the Electricity Act, 2003 is not absolute and may be conditioned on the payment of past dues if authorised by statutory conditions of supply or the Electricity Supply Code. The Court clarified that supply is to the consumer, not the premises, and that a fresh connection by a new owner is distinct from a reconnection. It further ruled that electricity arrears do not automatically become a charge on the property unless a specific statutory provision creates such a charge, but the State Commission’s power under Section 50 and Section 181 can create a statutory charge via regulations. The Court also held that the two‑year limitation in Section 56(2) only bars the remedy of disconnection, not civil recovery, and that auction sales on an “as is where is” basis put buyers on notice of any outstanding dues. Accordingly, the Court allowed some appeals where statutory conditions applied and dismissed others where they did not.

Issues considered

The duty to supply electricity under Section 43 of the Electricity Act, 2003 is absolute or subject to conditions.
Whether a fresh connection sought by an auction purchaser constitutes a reconnection or a new connection.
Whether electricity arrears of a previous owner can be treated as a charge or encumbrance enforceable against a transferee.
Whether the State Commission can, via the Electricity Supply Code, impose a statutory charge for recovery of past dues.
The effect of the two‑year limitation period in Section 56(2) on civil recovery of electricity dues.
The legal implications of an “as is where is” sale on liability for outstanding electricity dues.

Legislation cited

Electricity Act, 1910
Electricity Act, 2003s. 181, s. 42, s. 43, s. 45, s. 46, s. 47, s. 50, s. 56, s. 61
Electricity (Supply) Act, 1948
General Clauses Act, 1897s. 6
Securitisation and Reconstruction of Financial Assets and Enforcement of Security Interest Act, 2002
Sick Industrial Companies (Special Provisions) Act, 1985
State Financial Corporations Act, 1951
Transfer of Property Act, 1882s. 100

Subjects

electricity arrearsstatutory chargetransfer of propertySection 43 Electricity Act 2003Section 56 limitationas is where is salereconnection vs fresh connectionElectricity Supply Codeconsumer liabilityregulatory power

Judgment

[2023] 9 S.C.R. 637 : 2023 INSC 560 637

K. C. NINAN A
v.
KERALA STATE ELECTRICITY BOARD & ORS.
(Civil Appeal No 2109-2110 of 2004)
MAY 19, 2023 B
[DR DHANANJAYA Y CHANDRACHUD, CJI,
HIMA KOHLI AND PAMIDIGHANTAM SRI
NARASIMHA, JJ.]
Electricity Act, 2003 – ss. 42 and 61 – Liability of subsequent
C
owner to pay electricity charges due on previous owner – Whether
the arrears of unpaid electricity dues outstanding from the erstwhile
owner can be claimed from the subsequent owner, who has acquired
the property in proceedings initiated to enforce mortgages or to
pay off the dues of creditors – Held: In order to provide a supply of
electricity to consumers, a distribution licensee is required to lay D
down infrastructure such as electricity lines, transformers, and other
equipment – The licensees are required to maintain the infrastructure
even if the consumer does not consume electricity – The 2003 Act
has been enacted to promote the development of the electricity
industry as well as to protect the interests of the consumers and to
E
ensure the supply of electricity to all areas – The Supply Conditions
providing for recoupment of electricity dues of a previous consumer
from a new owner are necessary to recover the costs incurred for
laying down the infrastructure as well as the ongoing current
liabilities towards the electricity generation and transmission
companies – Apart from protecting a public good, such conditions F
also have a reasonable nexus with objects of the 2003 Act, such as
a robust development of the electricity industry, protecting the
interests of consumers as well as the financial interests of the
distribution licensees – It is just and reasonable for distribution
licensees to specify conditions of supply requiring the subsequent
G
owner or occupier of premises to pay the arrears of electricity dues
of the previous owner or occupier as a pre-condition for the grant
of an electricity connection to protect their commercial interests, as
well as the welfare of consumers of electricity.

H
637
638 SUPREME COURT REPORTS [2023] 9 S.C.R.

A Transfer of Property Act, 1882 – s.100 – Charge – Whether
arrears of electricity can become a charge or encumbrance over
the premise – Effect of statutory regulations or rules enacted by a
regulatory commission – Held: A charge cannot be enforced against
a transferee if they have no notice of the same, unless the requirement
of such notice has been dispensed with by law – The provisions of
B
the 1910 Act, 1948 Act, and the 2003 Act do not provide that the
arrears of electricity dues would constitute a charge on the property
or that such a charge shall be enforceable against a transferee
without notice – In Isha Marbles, the Supreme Court observed that
under the provisions of 1910 Act r/w. 1948 Act, electricity arrears
C do not create a charge over the property – Consequently, in general
law, a transferee of the premises cannot be made liable for the
outstanding dues of the previous owner since electricity arrears do
not automatically become a charge over the premises – The rule
making power contained u/s. 181 r/w. s. 50 of Electricity Act, 2003
is wide enough to enable the regulatory commission to provide for
D
a statutory charge in the absence of a provision in the plenary statute
providing for creation of such a charge – The electricity utilities
can create a charge by framing subordinate legislation or statutory
conditions of supply enabling recovery of electricity arrears from a
subsequent transferee – Such a condition is rooted in the importance
E of protecting electricity which is a public good – Public utilities
invest huge amounts of capital and infrastructure in providing
electricity supply – The failure or inability to recover outstanding
electricity dues of the premises would negatively impact the
functioning of such public utilities and licensees – Electricity Act,
2003 – ss. 50 and 181– Maharashtra Electricity Regulatory
F
Commission (Electricity Supply Code and other Conditions of
Supply) Regulations, 2005 – Regulation 10.5.
Electricity Act, 2003 – s. 43 – Whether the duty to supply
electricity is absolute – Held: s.43 begins with the words “Save as
otherwise provided in this Act” – Hence, the operation of s.43 will
G also be subject to compliance with the other provisions of the 2003
Act – Under s.43, the distribution licensee is obligated to supply
electricity to the premises of an owner or occupier, provided that
the owner or occupier pays all charges and complies with all
conditions stipulated by the distribution licensee – The proviso to
H s.43(2) further refers to the “price” payable by an applicant to
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 639
ORS.

demand or to continue to receive the supply of electricity from a A
distribution licensee – The term “price” has to be given a broad
meaning to include all the ‘tariffs’ and ‘charges’ that may be
determined by the appropriate commission – Thus, the duty to supply
electricity u/s.43 is not absolute, and is subject to the such charges
and compliances stipulated by the distribution licensees as part of
B
the application.
Electricity Act, 2003 – ss.2(15) and 43 – Whether duty to
supply electricity is with respect to the premises or to the consumer
– Held: The definition of ‘supply’ specifically states that supply
means the sale of electricity to a consumer – Considering the overall
scheme of the 2003 Act, the supply of electricity is to the consumer C
and not the premises – It is the owner or occupier who has the
statutory right to “demand” electricity for the premises under their
use or occupation – Thus, it is always the consumer who is supplied
electricity and is held liable for defaulting on payment of dues or
charges for supply of electricity D
Auction – Auction sale of premises on “as in where is” basis
– With or without reference to electricity arrears-Implication – Held:
When a property is sold on an “as is where is” basis, encumbrances
on the property stand transferred to the purchaser upon the sale –
All prospective auction purchasers are put on notice of the liability E
to pay the pending dues when an appropriate “as is where is” clause
is incorporated in the auction sale agreement – While examining
the effect of an “as is where is” clause, the facts and circumstances
of each case individually, along with the terminology of the clauses
governing the auction sales must be taken into consideration, to
arrive at an equitable decision. F

Interpretation of Statutes – Principle of Ejusdem Generis –
Rule of Construction – Applicability of – Ingredients – Discussed.
Disposing of the appeals, the Court
HELD:1. Under Section 43 of the Electricity Act, 2003, the G
distribution licensee is obligated to supply electricity to the
premises of an owner or occupier, provided that the owner or
occupier pays all charges and complies with all conditions
stipulated by the distribution licensee. Section 43 begins with
H
640 SUPREME COURT REPORTS [2023] 9 S.C.R.

A the words “Save as otherwise provided in this Act”. Hence, the
operation of Section 43 will also be subject to compliance with
the other provisions of the 2003 Act. The proviso to Section 43(2)
further refers to the “price” payable by an applicant to demand
or to continue to receive the supply of electricity from a
distribution licensee. The “price” is to be determined by the
B
appropriate commission. This “price” is the consideration, as
determined by the State Commission, that an applicant pays for
receiving a supply of electricity. The term “price” has to be given
a broad meaning to include all the ‘tariffs’ and ‘charges’ that may
be determined by the appropriate commission. This includes the
C ‘charges’ fixed under Section 45 by the appropriate commission
from time to time and the ‘charges’ that a distribution licensee
may impose under Section 46 to recover any reasonable
expenditure. The ambit of the term ‘price’ is wide enough to also
include the statutory dues that the State Commission decides to
enact by way of regulations under Section 50. Thus, the duty to
D
supply electricity under Section 43 is not absolute, and is subject
to such charges and compliances stipulated by the distribution
licensees as part of the application. [Paras 32, 40, 41-43][670-B-
C; 672-F-G; 673-A-B]

E 2. The definition of ‘supply’ specifically states that supply
means the sale of electricity to a consumer. The said definition
does not indicate that supply of electricity is vis-a-vis the
premises of the consumer. Considering the overall scheme of
the 2003 Act, the supply of electricity is to the consumer and not
the premises. It is always the consumer who is supplied electricity
F and is held liable for defaulting on payment of dues or charges for
supply of electricity. Perforce, the premises cannot be held to be
a defaulter and no dues can be attached to the premises of the
consumer. [Paras 50 and 56][676-D]

G 3. Under Section 43 of the 2003 Act, the owner or occupier
of premises can seek a supply of electricity for particular
premises. Perforce, when electricity is supplied, the owner or
occupier becomes a consumer only with respect to those
particular premises for which electricity is sought and provided.
For example, when a person owning an apartment in a residential
H complex applies for supply of electricity to such an apartment,
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 641
ORS.

they become a consumer only with respect to the apartment for A
which the application is made and to which electricity is supplied.
Such a person may own another apartment to which electricity
may already be supplied, but they will be considered a separate
consumer with respect to the second apartment. For an application
to be considered as a ‘reconnection’, the applicant has to seek
B
supply of electricity with respect to the same premises for which
electricity was already provided. Even if the consumer is the same,
but the premises are different, it will be considered as a fresh
connection and not a reconnection. [Para 61][679-H; 680-A-C]

4. The scheme of the 2003 Act makes it evident that the C
regulatory powers of the State Commission under section 181(2)
are of wide import. The Commission has certain plenary powers
to regulate on matters contained in section 181(2), including
Electric Supply Code under Section 50. Accordingly, the
Commission can notify a Supply Code governing all the matters
pertaining to supply of electricity such as “recovery of charges”, D
“disconnection of supply” and “restoration of supply”. In the
opinion of this Court, such an authority also extends to stipulating
conditions for recovery of electricity arrears of previous owners
from new or subsequent owners. [Para 84][690-F-G]
E
5. The 2003 Act has been enacted to promote the
development of the electricity industry as well as to protect the
interests of the consumers and to ensure the supply of electricity
to all areas. The Supply Conditions providing for recoupment of
electricity dues of a previous consumer from a new owner are
necessary to recover the costs incurred for laying down the F
infrastructure as well as the ongoing current liabilities towards
the electricity generation and transmission companies. In the
absence of such conditions, it may be difficult for the distribution
licensees to recover defaulted payments, adding to the revenue
deficits. This may adversely impact the financial health of the G
distribution licensees to the detriment of the interests of the
consumers. The Conditions of Supply and Electricity Supply Code

H
642 SUPREME COURT REPORTS [2023] 9 S.C.R.

A which require the payment of electricity dues of a previous owner
as a condition for the grant of an electricity connection have a
clear nexus to the scheme of the parent legislations and the
objectives sought to be achieved. It is just and reasonable for
distribution licensees to specify conditions of supply requiring
the subsequent owner or occupier of premises to pay the arrears
B
of electricity dues of the previous owner or occupier as a pre-
condition for the grant of an electricity connection to protect their
commercial interests, as well as the welfare of consumers of
electricity. [Paras 87 and 91][691-G-H; 692-A; 693-E-F]

C 6. The electricity utilities can create a charge by framing
subordinate legislation or statutory conditions of supply enabling
recovery of electricity arrears from a subsequent transferee. Such
a condition is rooted in the importance of protecting electricity
which is a public good. Public utilities invest huge amounts of
capital and infrastructure in providing electricity supply. The
D failure or inability to recover outstanding electricity dues of the
premises would negatively impact the functioning of such public
utilities and licensees. In the larger public interest, conditions
are incorporated in subordinate legislation whereby Electric
Utilities can recoup electricity arrears. Recoupment of electricity
E arrears is necessary to provide funding and investment in laying
down new infrastructure and maintaining the existing
infrastructure. In the absence of such a provision, Electric Utilities
would be left without any recourse and would be compelled to
grant a fresh electricity connection, even when huge arrears of
electricity are outstanding. Besides impacting on the financial
F health of the Utilities, this would impact the wider body of
consumers. [Para 113][700-F-H; 701-A]
7. The period of limitation under Section 56(2) is relatable
to the sum due under Section 56. The sum due under Section 56
relates to the sum due on account of the negligence of a person
G to pay for electricity. Section 56(2) provides that such sum due
would not be recoverable after the period of two years from when
such sum became first due. The means of recovery provided under
Section 56 relate to the remedy of disconnection of electric supply.
The right to recover still subsists. This Court rejects the
submission of the auction purchasers that the recovery of
H
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 643
ORS.

outstanding electricity arrears either by instituting a civil suit A
against the erstwhile consumer or from a subsequent transferee
in exercise of statutory power under the relevant conditions of
supply is barred on the ground of limitation under Section 56(2)
of the 2003 Act. Accordingly, while the bar of limitation under
Section 56(2) restricts the remedy of disconnection under Section
B
56, the licensee is entitled to recover electricity arrears through
civil remedies or in exercise of its statutory power under the
conditions of supply. [Paras 129 and 131][709-B-C; F-H]
8. All prospective auction purchasers are put on notice of
the liability to pay the pending dues when an appropriate “as is
where is” clause is incorporated in the auction sale agreement. C
It is for the intending auction purchaser to satisfy themselves in
all respects about circumstances such as title, encumbrances and
pending statutory dues in respect of the property they propose
to purchase. In a public auction sale, auction purchasers have
the opportunity to inspect the premises and ascertain the facilities D
available, including whether electricity is supplied to the premises.
Information about the disconnection of power is easily
discoverable with due diligence, which puts a prudent auction
purchaser on a reasonable enquiry about the reasons for the
disconnection. When electricity supply to a premises has been
disconnected, it would be implausible for the purchaser to assert E
that they were oblivious of the existence of outstanding electricity
dues. In terms of the legal doctrine of caveat emptor, it becomes
the duty of the buyer to exercise due diligence. A seller is not
under an obligation to disclose patent defects of which a buyer
has actual or constructive notice in terms of Section 3 of the F
Transfer of Property act, 1882. However, in terms of Section
55(1)(a), in the absence of a contract to the contrary, the seller is
under an obligation to disclose material defects in the property
or in the seller’s title thereto of which he is aware and which a
buyer could not with ordinary care discover for himself. While
examining the effect of an “as is where is” clause, the facts and G
circumstances of each case individually, along with the terminology
of the clauses governing the auction sales must be taken into
consideration, to arrive at an equitable decision. [Paras 141-
143][715-G-H; 716-A-E]
H
644 SUPREME COURT REPORTS [2023] 9 S.C.R.

A 9. The rule of “ejusdem generis” is a principle of
construction. The rule is that when general words follow particular
and specific words of the same nature, the general words must
be confined to the things of the same kind as those specified. It
applies when the following ingredients are present: (i) the statute
contains an enumeration of specific words; (ii) the subjects of
B
enumeration constitute a class or category; (iii) that category is
not exhausted by the enumeration; (iv) a general term follows
the enumeration; and (v) there is no indication of a different
legislative intent. For the application of the ejusdem generis rule,
it is essential that enumerated things before the general words
C must constitute a distinct category or a genus or a family which
admits of a number of members. [Paras 187 and 188][732-D-F]
Conclusions
10. a). The duty to supply electricity under Section 43 of
the 2003 Act is not absolute, and is subject to the such charges
D and compliances stipulated by the Electric Utilities as part of the
application for supply of electricity; b). The duty to supply
electricity under Section 43 is with respect to the owner or
occupier of the premises. The 2003 Act contemplates a synergy
between the consumer and premises. Under Section 43, when
E electricity is supplied, the owner or occupier becomes a consumer
only with respect to those particular premises for which electricity
is sought and provided by the Electric Utilities; c). For an
application to be considered as a ‘reconnection’, the applicant
has to seek supply of electricity with respect to the same premises
for which electricity was already provided. Even if the consumer
F is the same, but the premises are different, it will be considered
as a fresh connection and not a reconnection; d). A condition of
supply enacted under Section 49 of the 1948 Act requiring the
new owner of the premises to clear the electricity arrears of the
previous owner as a precondition to availing electricity supply
G will have a statutory character; e). The scope of the regulatory
powers of the State Commission under Section 50 of the 2003
Act is wide enough to stipulate conditions for recovery of
electricity arrears of previous owners from new or subsequent
owners; f). The Electricity Supply Code providing for recoupment

H
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 645
ORS.

of electricity dues of a previous consumer from a new owner have A
a reasonable nexus with the objects of the 2003 Act; g). The rule
making power contained under Section 181 read with Section 50
of the 2003 Act is wide enough to enable the regulatory
commission to provide for a statutory charge in the absence of a
provision in the plenary statute providing for creation of such a
B
charge; h). The power to initiate recovery proceedings by filing a
suit against the defaulting consumer is independent of the power
to disconnect electrical supply as a means of recovery under
Section 56 of the 2003 Act; i). The implication of the expression
“as is where is” basis is that every intending bidder is put on
notice that the seller does not undertake responsibility in respect C
of the property offered for sale with regard to any liability for the
payment of dues, like service charges, electricity dues for power
connection, and taxes of the local authorities; and j). In the
exercise of the jurisdiction under Article 142 of the Constitution,
the Electric Utilities have been directed in the facts of cases to
D
waive the outstanding interest accrued on the principal dues from
the date of application for supply of electricity by the auction
purchasers. [Para 328][781-B-H; 782-A-E]
PTC India Ltd. v. Central Electricity Regulatory
Commission (2010) 4 SCC 603 : [2010] 3 SCR 609 –
followed. E

Deputy Commercial Tax Officer, Park Town Division v.
Sha Sukhraj Peerajee AIR 1968 SC 67 : [1967] 3 SCR
661 and State of Kerala v. VT Kallianikutty (1999) 3
SCC 657 : [1999] 2 SCR 372 - held not applicable.
F
Indian Council of Legal Aid and Advice v. Bar Council
of India (1995) 1 SCC 732 : [1995] 1 SCR 304; India
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12 : [1989] 1 Suppl. SCR 692; Punjab Urban Planning
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Deepak Theatre v. State of Punjab (1992) 1 Supp SCC
684 : [1991] 3 Suppl. SCR 242; K Ramanathan v. State H
646 SUPREME COURT REPORTS [2023] 9 S.C.R.

A of Tamil Nadu (1985) 2 SCC 116 : [1985] 2 SCR 1028;
V S Rice and Oil Mills v. State of Andhra Pradesh [1964]
7 SCR 456; Dakshin Haryana Bijli Vitran Nigam Ltd v.
M/s Paramount Polymers Pvt Ltd. AIR 2007 SC 2 :
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B
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C affirmed.
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H
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 647
ORS.

[1984] 1 SCR 165; Bihar State Electricity Board v. A
Parmeshwar Kumar Agarwala (1996) 4 SCC 686 :
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B
State Electricity Board v. Hanuman Rice Mills, Dhanaur
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Ahmedabad Municipal Corporation v. Haji Abdulgafur C
Haji Hussenbha (1971) 1 SCC 757; Dattatreya Shanker
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D
(2009) 4 SCC 486 : [2009] 2 SCR 705; Ajmer Vidyut
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F
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648 SUPREME COURT REPORTS [2023] 9 S.C.R.

A Development Corpn. (India) Ltd. (2019) 17 SCC 786 :
[2019] 2 SCR 41; Adoni Cotton Mills Ltd. v. Andhra
Pradesh State Electricity Board (1976) 4 SCC 68 :
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B
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C State Electricity Board v. Hari Shankar Jain (1978) 4
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SCR 1097 – referred to.
Suraj v. KSEB 2005 (3) KLT 856; A Ramachandran v.
D KSEB 2000 SCC OnLine Ker 75 – referred to.
Case Law Reference
[1995] 1 SCR 847 referred to Para 17
[2004] 3 SCR 23 referred to Para 18
E
[1998] 2 SCR 620 referred to Para 19
[2006] 7 Suppl. SCR 635 relied on Para 20
[2008] 15 SCR 766 relied on Para 21
F [2020] 4 SCR 295 referred to Para 22
[2011] 11 SCR 112 referred to Para 31
[2014] 6 SCR 50 affirmed Para 32
[2010] 8 SCR 636 referred to Para 38
G
[2003] 4 Suppl. SCR 932 referred to Para 39
[1969] 2 SCR 939 referred to Para 44
[2002] 3 SCR 278 referred to Para 44

H [2013] 13 SCR 388 referred to Para 46
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 649
ORS.

[1992] 3 SCR 642 referred to Para 47 A
[1979] 3 SCR 709 referred to Para 66
[1994] 3 SCR 33 referred to Para 69
[1984] 1 SCR 165 referred to Para 69
B
[1996] 3 Suppl. SCR 29 referred to Para 69
[1993] 3 SCR 199 referred to Para 70
[2000] 1 SCR 925 referred to Para 73
[1991] 3 Suppl. SCR 242 relied on Para 75 C
[1985] 2 SCR 1028 relied on Para 75
[1964] 7 SCR 456 relied on Para 76
[2010] 10 SCR 217 referred to Para 77
D
[2007] 12 SCR 136 referred to Para 82
[2010] 3 SCR 609 followed Para 83
[1969] 3 SCR 513 referred to Para 92
(1971) 1 SCC 757 referred to Para 93 E
[1975] 2 SCR 224 referred to Para 96
[2006] 1 SCR 235 referred to Para 96
[2009] 2 SCR 705 referred to Para 97
F
[1967] 3 SCR 661 held not applicable Para 105
[1995] 1 SCR 304 distinguished Para 105
[1989] 1 Suppl. SCR 692 distinguished Para 105
[2020] 2 SCR 929 referred to Para 114 G
[1999] 2 SCR 372 held not applicable Para 116
[2020] 6 SCR 231 referred to Para 121
[1997] 1 SCR 532 referred to Para 123
H
650 SUPREME COURT REPORTS [2023] 9 S.C.R.

A [2008] 9 SCR 752 referred to Para 125
[2012] 8 SCR 118 distinguished Para 132
[2016] 3 SCR 1126 distinguished Para 132
[2009] 4 SCR 54 referred to Para 134
B
[1975] Suppl. SCR 234 referred to Para 160
[2012] 13 SCR 71 referred to Para 185
[1973] 1 SCR 533 referred to Para 187
C [2002] 2 SCR 945 referred to Para 187
[1999] 3 SCR 907 referred to Para 188
[2019] 2 SCR 41 referred to Para 188
[1977] 1 SCR 133 referred to Para 188
D
[1978] 3 SCR 913 referred to Para 194
[1960] 3 SCR 887 referred to Para 196
(2015) 5 SCC 718 referred to Para 196

E [2008] 9 SCR 267 referred to Para 282
[1981] 1 SCR 1083 referred to Para 284
[1979] 1 SCR 355 referred to Para 285
[2014] 14 SCR 1097 referred to Para 287
F
CIVIL APPELLATE JURISDICTION: Civil Appeal Nos. 2109-
2110 of 2004.
From the Judgment and Order dated 13.02.2003 of the High Court
of Kerala at Ernakulam in O.P. No.10441 of 1991 and dated 03.09.2003
in R.P. No. 307 of 2003.
G
With
Civil Appeal Nos. 2108 of 2004, 5312-5313, 5314, 6587, 7303 of
2005, 6579, 6593-6594 of 2022, 3018 of 2007, 7169, 6591, 6595, 6879-
6881, 6592, 7103-7104, 6828, 7064, 6590 and 3640 of 2022.
H
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 651
ORS.

Ranjit Kumar, Vijay Hansaria, M.G. Ramachandran, Ajit S Bhasme, A
V. Giri, Shekhar Naphade, Rana Mukherjee, Bharat Patel, P.S. Patwalia,
Ravindra Kumar, Sr. Advs., Mahesh Agarwal, Ankur Saigal, Ms. Sayaree
Basu Mallick, Abhinabh Garg, Shashwat Singh, E.C. Agrawala, Pradeep
Misra, Daleep Dhyani, Manoj Kumar Sharma, Kshitij Mittal, Ms.
Madhumita Bhattacharjee, Ms. Srija Choudhury, Ms. Kavya Jhawar,
B
Ms. Srishti Khindaria, Bhargava V. Desai, Ms. Charu Modi, Deepanshu,
Sanjay Kumar Visen, Mukesh Kumar Pandey, Suresh Kumar Bhan,
Sandeep Joshi, Ms. Ritu Rastogi, Ms. Mohini Kumari, Aman, E. M. S.
Anam, Puneet Jain, Christi Jain, Yogit Kamat, Mann Arora, Umang
Mehta, Ms. Shruti Singh, Ms. Pratibha Jain, Romy Chacko, Sudesh Kumar
Singh, Nikhil Jain, Susheel Tomar, Puneet Singh Bindra, Satya Prakash, C
Vinod Kumar Jain, Prashant Mohla, Ms. Simran Jeet, Yasharth Kant,
Ms. Zinnea Mehta, Shrirang B. Varma, Sagar Juneja, Harshit Sethi,
Neeraj Kumar Verma, Ms. Kavya Jhawar, Ms. Sneha Kalita, Ms.
Hemantika Wahi, Ms. Jesal Wahi, Anand Ganesan, Ms. Aneesh Bajaj,
Amar Dave, Ms. Nandini Gore, Ms. Neha Khandelwal, Ms. Ramya
D
Khanna, Ms. Farah Hashmi, Dr. Prashant Pratap, Kumar Mitakshar,
Yashwant Gaggar, Mrs. Manik Karanjawala, R.B. Phookan, Ms. Neha
Tandon, Shailesh Madiyal, Chirag M. Shroff, Ms. Ruby Singh Ahuja,
Raj Singh Rana, Vijay K Verma, Ms. Akshita Mohnot, Rajat Srivastav,
Praveen Chaturvedi, M.Y. Deshmukh, Ms. Manjeet Kirpal, Ms.
Adveetiya Sharma, Rameshwar Prasad Goyal, Ashok Mathur, Purvish E
Jitendra Malkan, Alok Kumar, Mrs. Dharita Purvish Malkan, Ms. Nandini
Chhabra, Vismay Malkan, Ms. Dhruva Kumar, Chandan Kumar Mandal,
Shakti Chand Jaidwal, D.N. Ray, Dillip Kumar Nayak, Ms. Disha Ray,
Mrs. Sumita Ray, P. V. Dinesh, Raghenth Basant, Rahul Raj Mishra,
Bineesh K., Ashwini Kumar Singh, Sudhir, Parinay Deep Shah, Ms.
F
Sharmila Upadhyay, Shivaji M. Jadhav, Brij Kishor Sah, Ms. Shivani
Rautela, Ms. Apurva, Adarsh Kumar Pandey, M/s. Ap & J Chambers,
Jatin Zaveri, T. Srinivasa Murthy, P. N. Gupta, Mrs. Bharti Gupta, Ram
Lal Roy, Ms. Anukriti Sugam, Abhijeet Sinha, P. V. Yogeswaran, Ms.
Bansuri Swaraj, Sidhesh Kotwal, Ms. Ana Upadhyay, Ms. Manya Hasija,
Nihar Dharmadhikari, Akash Singh, Ms. Harshika Verma, Nirnimesh G
Dube, Ms. Divya Roy, P. S. Sudheer, Ms. Anne Mathew, Bharat Sood,
Ms. Shruti Jose, Siddharth Dharmadhikari, Aaditya A. Pande, Bharat
Bagla, Ms. Deepanwita Priyanka, Advs. for the appearing parties.

H
652 SUPREME COURT REPORTS [2023] 9 S.C.R.

A The Judgment of the Court was delivered by
DR DHANANJAYA Y CHANDRACHUD, CJI
Table of Contents*
A. Overview .......................................................................... 4
B B. Regulatory Regime ........................................................... 5
C. The position in law ......................................................... 10
D. Issues .............................................................................. 14
E. Submissions .................................................................... 15
C
F. Analysis .......................................................................... 25
G. Application: Facts of Individual Cases ........................... 89
I. Kerala ............................................................................. 90
II. Maharashtra ................................................................... 99
D
III. Gujarat .......................................................................... 132
IV. Assam........................................................................... 166
V. West Bengal ................................................................. 170
H. Equity and Fairness ...................................................... 175
E
I. Conclusions ................................................................... 177
A. Overview
1. The nineteen cases in this batch of appeals follow a similar
pattern of facts. The supply of electricity was discontinued due to the
F failure of the previous owners to pay the dues for consumption of
electricity on the premises. The previous owners had borrowed money
or raised loans on the security of their premises. In some cases, the
erstwhile owner went into liquidation. The premises were sold in auction
sales generally on an “as is where is” basis. The new owners, who
G purchased the properties in auction, applied for new electricity connections
for the premises to which electricity had been disconnected for failure
to pay the dues. The Electric Utilities refused to provide an electricity
connection unless the auction purchaser paid the dues of the previous
owner. This refusal was derived from powers conferred under subordinate
legislations, notifications, electricity Supply Codes or state regulations.
H
*Ed. Note : Pagination in the Table is as per the original Judgment.
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 653
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

The denial of electricity supply resulted in the institution of petitions under A
Article 226 before the High Court, leading to the judgments which are in
appeal.
2. In Maharashtra State Electricity Board v. Super &
Stainless Hi Alloy Ltd1, this Court by an order dated 24 August 2006
referred the Civil Appeals to a Bench of three Judges for dealing with B
the issue of the recovery of arrears of electricity. The order of reference
referred the question of whether electricity dues constitute a charge on
the property so far as the transferor and the transferee of the unit are
concerned.
3. The matters involving similar nature of dispute were tagged C
along with the above reference by an order dated 1 November 2007.
The issue which is raised in these appeals is whether the arrears of
unpaid electricity dues outstanding from the erstwhile owner can be
claimed from the subsequent owner, who has acquired the property in
proceedings initiated to enforce mortgages or to pay off the dues of
creditors. D

B. Regulatory Regime
4. Electricity is a concurrent subject under the Constitution of
India. Prior to the enactment of the Electricity Act 20032, the Electricity
Act 19103 governed the supply and use of electrical energy in India. The E
1910 Act prescribed the legal framework for laying down cables and
other works related to the supply of electricity. It also laid down a legal
framework for supply of electrical energy and imposed certain
responsibilities and obligations on persons licensed to supply electricity
with a view to incentivise the growth of the electricity industry through
private licensees. F
5. Section 2(c) of the 1910 Act defined “consumer” as any person
supplied with energy by a licensee or any other person engaged in the
business of supplying energy to the public under the Act, and included
any person whose premises were for the time being connected for the
purposes of receiving energy. Section 21(2) empowered a licensee to G
make conditions to regulate their relations with persons who were or
intend to become consumers. Section 22 obligated a licensee to supply
1 Civil Appeal Nos 5312-5313 of 2005
2 “2003 Act”
3 “1910 Act”
H
654 SUPREME COURT REPORTS [2023] 9 S.C.R.

A electrical energy, on application, to every person within the area of supply
on the same terms as those on which any other person in the same area
was entitled. Section 24 empowered the licensee to disconnect the supply
of electricity if any person neglected to pay any charge or sum for energy
due to the licensee.
B 6. The 1910 Act was found inadequate for a coordinated
development of electricity and a “grid-system” in India. Therefore, the
Electricity (Supply) Act 19484 was enacted for the rationalisation of the
production and supply of electricity and for taking measures conducive
to the development of electricity. The 1948 Act mandated the state
governments to constitute State Electricity Boards under Section 5 and
C entrusted them with the responsibility of administering the grid-system
and arranging the supply of electricity in the state. Section 26 provided
that, subject to the provisions of the Act, the Board shall have all the
powers and the obligations of a licensee under the 1910 Act. Section 49
empowered the Boards to supply electricity to any person, not being a
D licensee, on such terms and conditions as laid down by the Board. In
terms of Section 70(2), the provisions of the 1948 Act were in addition
to, and not in derogation of the 1910 Act.
7. Parliament enacted the Electricity Regulatory Commissions Act
19985 with an aim to distance the government from determination of
E tariffs. The 1998 Act created the Central Electricity Regulatory
Commission and enabled the state governments to create State Electricity
Regulatory Commissions.
8. Parliament consolidated and harmonised the provisions of the
1910 Act, 1948 Act, and 1998 Act by enacting the 2003 Act. In the
F process, the 2003 Act repealed the aforesaid three legislations. The long
title of the 2003 Act reads as follows:
“An Act to consolidate the laws relating to generation, transmission,
distribution, trading and use of electricity and generally for taking
measures conducive to development of electricity industry,
G promoting competition therein, protecting interests of consumers
and supply of electricity to all areas, rationalisation of electricity
tariff, ensuring transparent policies regarding subsidies, promotion
of efficient and environmentally benign policies, constitution of
Central Electricity Authority, Regulatory Commissions and
4 “1948 Act”
H 5 “1998 Act”
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 655
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

establishment of Appellate Tribunal and for matters connected A
therewith or incidental thereto.”
9. The 2003 Act has been enacted in pursuance of the policy of
encouraging private sector participation in the generation, transmission,
and distribution of electricity. Other objectives of the 2003 Act include
vesting the regulatory responsibilities from government to the regulatory B
commissions, delicensing of electricity generation, promotion of captive
generation, and encouraging open access transmission. Section 2(15) of
the 2003 Act defines ‘consumer ‘in terms similar to Section 2(c) of the
1910 Act. Part VI of the 2003 Act deals with distribution of electricity.
Section 43 casts a Universal Service Obligation6 on the distribution
licensee to provide supply of electricity to the premises of an owner or C
occupier. The State Commission has been empowered under Section 50
to specify an Electricity Supply Code to provide among other things for
the recovery of electricity charges, intervals for billing of electricity
charges and disconnection of supply of electricity for non-payment. Under
Section 56, the generating company or distribution licensee, as the case D
may be, may disconnect electricity supply of any person who neglects to
pay any charge or sum for electricity. Section 181(2)(x) provides that
the State Commission may make regulations inter alia providing for, the
Electricity Supply Code under Section 50.
10. In light of the provisions contained in the 1910 Act, 1948 Act, E
and 2003 Act, various Electric Utilities such as State Electricity Regulatory
Commissions, State Electricity Boards, and distribution licensees notified
Conditions of Supply requiring the new owner of premises to clear the
outstanding dues of the previous owner. The nineteen cases in the batch
of appeals originate from the States of Kerala, Maharashtra, Gujarat,
Assam, and West Bengal. F

11. In Kerala, the Kerala State Electricity Board7 notified the
Conditions of Supply of Electrical Energy in 1990. Condition 15(e) of the
Conditions of Supply provides that reconnection or a new connection
shall not be given to any premises unless the arrears due to the Board
are cleared. G
12. In Maharashtra, the Maharashtra State Electricity Board8
framed MSEB Conditions and Miscellaneous Charges for Supply of
6 “USO”
7 “KSEB”
8 “MSEB”
H
656 SUPREME COURT REPORTS [2023] 9 S.C.R.

A Electrical Energy, 19769 in exercise of power under the 1948 Act. Clause
23(b) of the MSEB Conditions of Supply allowed the Board to refuse to
supply or give a new electricity connection to any person claiming to be
an heir, legal representative, transferee, assignee or successor of the
defaulting consumer. After the enactment of the 2003 Act, the
Maharashtra Electricity Regulatory Commission (Electricity Supply Code
B
and other Conditions of Supply) Regulations 200510 were framed.
Regulation 10.5provides that unpaid electricity dues constitute a charge
on the property and can be recovered from the transferee (subject to a
maximum of six months of unpaid charges for electricity supplied).
13. In Gujarat, the Gujarat Electricity Board inserted Condition
C 2(j) in the Conditions and Miscellaneous Charges for Supply of Electrical
Energy in 2001.11 This condition empowered the Board to insist that the
new occupier of the premises clear the pending electricity dues of the
previous consumer as a precondition to reconnection or release of a
fresh connection. In 2005, the Gujarat Electricity Regulatory Board
D notified the Gujarat Electricity Regulatory Commission (Electricity Supply
Code and Related Matters) Regulations, 200512. Clause 4.1.11 of Gujarat
Electricity Supply Code, 2005 provided that only the dues of the applicant,
if any, were required to be paid at the time of the application for a new
connection. The said Clause was later amended in 2010 to provide that
the distribution licensee need not entertain an application for reconnection
E or a new connection unless any dues relating to those premises are
cleared.
14. In Assam, the Assam Electricity Regulatory Commission13
framed the Assam Electricity Regulatory Commission (Electricity Supply
Code and Related Matters) Regulations, 2004. 14 Clause 3.6 dealing with
F the requisition of electricity supply requires a person occupying a new
premises to ensure that all the outstanding electricity dues are duly paid
up and discharged.
15. In West Bengal, the West Bengal Electricity Regulatory
Commission (Electricity Supply Code) Regulations, 201215 have been
G 9 “MSEB Conditions of Supply”
10 “Maharashtra Electricity Supply Code 2005’’
11 “Gujarat Conditions of Supply”

12 “Gujarat Electricity Supply Code”

13 “AERC”

14 “AERC Supply Code”

H 15 “WB Electricity Supply Code”
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 657
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

notified under the 2003 Act. Clause 3.4.2 of the said regulations empowers A
the licensee to recover the dues of a previous consumer in respect of
the premises from a new consumer only if there is a nexus between the
previous consumer and the new consumer.
16. The subsequent owners or occupiers of the premises challenged
the Conditions of Supply and Electricity Supply Codes enacted by the B
Electric Utilities before the respective High Courts when they were
called upon to clear the arrears of the previous owners or dues relating
to the premises.
C. The position in law
17. Prior to the enactment of the 2003 Act, in Isha Marbles v. C
Bihar State Electricity Board,16 a three-judge Bench of this Court
held that in the absence of a charge being created over the premises by
a statutory regulation, an auction purchaser cannot be asked to clear the
past arrears of electricity dues as a condition precedent to the grant of
electricity. This Court elucidated the position in the context of Section 24 D
of the 1910 Act to emphasise that the contract for supply was only
between the Electricity Board and the previous consumer, and the
subsequent purchaser was neither a consumer within the meaning of
the 1910 Act nor had any contractual relationship with the Electricity
Board. This Court noted that though electricity is public property which
the law must protect, yet the law, as it stood at that time, was inadequate E
to enforce the liability of unpaid electricity charges of a previous consumer
against a subsequent purchaser of the premises. In Isha Marbles
(supra), this Court did not have to deal with any statutory rule, regulation
or conditions of supply dealing with the imposition of liability for the
payment of electricity dues on a subsequent purchaser. F
18. Thereafter, another Bench of three judges in Ahmedabad
Electricity Co. Ltd. v. Gujarat Inns (P) Ltd,17 held that in a case of a
fresh connection, though the premises are the same, the auction
purchasers cannot be held liable to clear the arrears incurred by the
previous owners in respect of power supplied to the premises in the G
absence of a specific statutory provision in that regard. However, this
Court opined that there was a need for reconsideration of the “wide
propositions of law” laid down in Isha Marbles (supra).
16 1995 SCC (2) 648
17 (2004) 3 SCC 587 H
658 SUPREME COURT REPORTS [2023] 9 S.C.R.

A 19. In Hyderabad Vanaspathi Ltd v. Andhra Pradesh State
Electricity Board,18 a three-judge Bench of this Court observed that
the terms and conditions of supply notified by the Electricity Boards are
statutory in character as they have been framed in exercise of statutory
power under Section 49 of the 1948 Act. The mere fact that individual
agreements were entered into with every consumer did not make the
B
agreement contractual in nature.
20. In a series of subsequent decisions of this Court, various two-
judge Bench decisions have taken note of specific statutory regulations
enabling recovery of dues from subsequent purchasers. In the process,
this Court distinguished Isha Marbles (supra), where the Court had no
C occasion to consider similar provisions. In Dakshin Haryana Bijli Vitran
Nigam Ltd v. M/s Paramount Polymers Pvt Ltd,19 this Court was
dealing with Clause 21A of the relevant Conditions of Supply, which
entitled a licensee to demand payment of outstanding dues from a
transferee if they desired a service connection. It was held that Isha
D Marbles (supra) cannot be applied to strike down Clause 21A as the
Court in that case had no occasion to consider the effect of a similar
clause. The matter was remitted back to the High Court for a fresh
decision since it had not adjudicated on the implication of Clause 21A of
the Conditions of Supply.
E 21. In Paschimanchal Vidyut Vitran Nigam Limited v. DVS
Steels and Alloys Private Limited,20 this Court observed that a
licensee or an electricity distributor can insist upon fulfilment of statutory
rules, regulations or the conditions of supply so long as they are not
arbitrary and unreasonable. It was further held that the conditions of
supply mandating the clearance of electricity dues of a previous owner
F by a new purchaser before electricity supply is restored or a new
connection is given to the premises cannot be termed as unreasonable
or arbitrary.
22. The position of law as formulated in Paramount Polymers
(supra) and Paschimanchal Vidyut Vitaran Nigam Limited (supra)
G has been consistently followed by this Court in ensuing decisions. Recently,
in Telangana State Southern Power Distribution Co. Ltd. v.

18 (1998) 4 SCC 470
19 AIR 2007 SC 2
20 (2009) 1 SCC 210
H
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 659
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

Srigdhaa Beverages,21 this Court reiterated the judicial thinking on the A
liability of subsequent owners with regard to the electricity dues of the
past owners. This Court observed:
“16.1. That electricity dues, where they are statutory in character
under the Electricity Act and as per the terms & conditions of
supply, cannot be waived in view of the provisions of the Act B
itself more specifically Section 56 of the Electricity Act, 2003 (in
pari materia with Section 24 of the Electricity Act, 1910), and
cannot partake the character of dues of purely contractual nature
16.2. Where, as in cases of the E-auction notice in question, the
existence of electricity dues, whether quantified or not, has been C
specifically mentioned as a liability of the purchaser and the sale
is on “AS IS WHERE IS, WHATEVER THERE IS AND
WITHOUT RECOURSE BASIS”, there can be no doubt that
the liability to pay electricity dues exists on the respondent
(purchaser)
D
16.3. The debate over connection or reconnection would not exist
in cases like the present one where both aspects are covered as
per clause 8.4 of the General Terms & Conditions of Supply.”
Having set the stage of the legal and decisional framework, we
have been tasked to decide the present batch of appeals. E
D. Issues
23. Based on the submissions of the parties, the specific issues
which arise for determination are:
a. Whether the Universal Service Obligation under Section 43 of
F
the 2003 Act is linked to premises to which the connection is
sought;
b. Whether a connection of electricity supply sought by an auction-
purchaser comprises a reconnection or a fresh connection;
c. Whether the power to recover arrears of a previous owner or G
occupier from an auction-purchaser of the premises falls within
the regulatory regime of the 2003 Act;
d. Whether the power to enable the recovery of arrears of the
previous owner or occupier from an auction-purchaser can be
21 (2020) 6 SCC 404 H
660 SUPREME COURT REPORTS [2023] 9 S.C.R.

A provided through subordinate legislation by the State
Commissions;
e. Whether the 1910 Act, 1948 Act, and the 2003 Act have express
provisions enabling the creation of a charge or encumbrance
over the premises;
B f. Whether the statutory bar on recovery of electricity dues after
the limitation of two years provided under Section 56(2) of the
2003 Act, will have an implication on civil remedies of the
Electric Utilities to recover such arrears; and
g. What is the implication of an auction-sale of premises on “as is
C where is” basis, with or without reference to electricity arrears
of the premises?
E. Submissions
24. To put the above-mentioned issues in their proper context, we
D refer to the broad legal submission adduced before us by the parties.
I. Electric Utilities
25. Sarvashri M G Ramachandran, Mr Ranjit Kumar, Mr Vijay
Hansaria, Mr. Ajit Bhasme, learned senior counsel appearing for Electric
Utilities have made the following submissions:
E a. USO is not absolute
i. The duty of the licensee to supply electricity under
Section 43 of the 2003 Act is not absolute. Section 43
provides that an applicant has to fulfil the corresponding
obligations to become entitled to the supply of electricity;
F
ii. Section 43(1) opens with the words “save as otherwise
provided in the Act”, which brings in compliance with
other provisions of the 2003 Act including Section 50
which empowers the State Commission to specify the
Electricity Supply Code;
G
iii. The Explanation to Section 43(1) requires the applicant
to submit an application complete in all respects along
with documents showing payment of necessary charges
and other compliances. This payment not only includes
application fees, but also includes the charges related
H
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 661
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

to supply of electricity; The other compliances would A
include due discharge of any pending or outstanding
dues, if so demanded by the licensee; and
iv. Section 43(2) specifically provides that the applicant
has to fulfil the obligation to pay the price as determined
by the State Commission to demand the supply of B
electricity. The term “price” used in Section 43 is the
consideration for the supply of electricity.
b. Supply of electricity is with respect to premises
i. The supply of electricity is with reference to the
“premises” according to Sections 2(15), 43, 45, and 50 C
of the 2003 Act. Similar provisions existed in the 1910
Act and 1948 Act. Further, the disconnection dealt in
Section 56 of the 2003 Act and Section 24 of the 1910
Act necessarily relate to identified premises;
ii. The definition of consumer under Section 2(15) of the D
2003 Act includes “any person whose premises are
for the time being connected for the purpose of
receiving electricity with the works of a licensee…”
Hence the expression “premises” is the continued
identified place for supply of electricity, irrespective of E
any change in the owner or occupier; and
iii. The Electric Utilities are required to have an
infrastructure in place for the purposes of supplying
electricity to consumers. They have to incur operation
and maintenance costs to be in readiness to supply F
electricity. Therefore, if liability is not fastened to the
premises, such charges would ultimately be borne by
the general consumers since this would be factored in
the fixation of tariff.
c. Regulatory regime to recover arrears of electricity dues
G
i. Section 49 of the 1948 Act empowers the Electricity
Board to supply electricity upon such terms and
conditions as the Board thinks fit. Under Section 79 of
the 1948 Act, the Board can make regulations not
inconsistent with the Act and the Rules made
H
662 SUPREME COURT REPORTS [2023] 9 S.C.R.

A thereunder. In Hyderabad Vanaspathi (supra) this
Court held that terms and conditions of supply framed
by the Electricity Board under Section 49 of the 1948
Act are statutory in character;
ii. The terms and conditions of supply under the 2003 Act
B are framed by independent regulators in terms of Section
50 read with Section 181(2)(x) of the 2003 Act after
following a detailed procedure. Therefore, the Electricity
Supply Code framed by the State Commission is a
subordinate legislation and has a statutory character.
This statutory authority enables the Supply Code to
C provide for recovery of dues of the previous owner from
the subsequent owner; and
iii. The condition of payment of outstanding dues is not a
compulsory extraction of money and does not require a
primary legislation by Parliament or state legislature.
D Such a condition can be prescribed by a subordinate
legislation.
d. Electricity arrears as charge over the premises
i. i. It is not the case of the Electric Utilities that there is
E any mortgage or charge over the property in the form
that the licensee is a secured creditor. The licensee has
the right to insist on clearance of outstanding dues of
the premises before giving a new connection.
e. Civil and Statutory remedies to recover electricity
F arrears of the Utilities
(i) Section 56(2) of the 2003 Act does not bar the recovery
of electricity arrears through other avenues of recovery
in accordance with law;
(ii) The limitation of two years under Section 56(2) of the
G 2003 Act is with reference to bar on disconnection by
the licensee. There is no limitation under Section 56
after the electricity is discontinued for non-payment of
dues. A Condition of Supply to recover electricity
arrears is not barred by limitation under Section 56(2)
of the 2003 Act; and
H
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 663
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

(iii) The right of a distribution licensee to deny electricity A
connection till outstanding dues are cleared is a
continuing right and cannot be said to be extinguished.
It can be exercised when the new owner or occupier
approaches the licensee for connection.
f. Implication of an auction-sale of premises on “as is where B
is” basis
I. i. The auction purchasers were put to notice of the
requirement of clearing the dues as the public auction-
sale of the premises on “as is where is” basis would
include a condition of acknowledging all liabilities in C
respect of the said premises, with or without specific
reference to the payment of electricity dues;
i. ii. There is an obligation on persons acquiring the premises
to verify and obtain a no dues certificate from the
licensee or otherwise factor the dues while quoting the D
bid price in the auction; and
ii. iii. The purchaser cannot deny knowledge of the
requirement to clear outstanding dues of the premises
when these are provided for in the conditions of supply
or Supply Code. E
II. Auction Purchasers
26. Sarvashri Shekhar Naphade, Mr. V Giri, Mr. PS Patwalia,
Mr. S Ganesh, senior counsel, and Mr. Puneet Jain, Mr. Amar Dave,
Mr. EMS Anam, Mr. DN Ray, Mr. T Srinavasa Murthy, Mr. Bharat
Patel, Mr. Ram Lal Roy, Mr. Purvish Jitendra Malkan, and Mr. MY F
Deshmukh learned counsel on behalf of the auction purchasers have
urged the following submissions:
a. USO is absolute
i. (i) Electricity constitutes goods within the meaning of
Entries 53, 54, and 56 of List II of the Seventh Schedule G
of the Constitution and under the Sale of Goods Act
1930;
ii. (ii) The obligation to provide electricity to consumers under
Section 43 of the 2003 Act is not hedged by a condition
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664 SUPREME COURT REPORTS [2023] 9 S.C.R.

A to discharge the arrears incurred by the previous
consumer;
iii. (iii) The phrase “price as determined by the appropriate
commission” in Section 43(2) of the 2003 Act could
only be the price at which electricity is supplied to the
B distribution licensee. Thus, ‘price’ under Section 43
cannot include the arrears of the previous consumer;
(iv) The payment of necessary “charges” and “other
compliances” contemplated under Section 43 relates to
the application fees, and cannot be stretched to include
C a power to require the payment of third-party arrears;
(v) The statutory duty of a licensee to supply power on an
application by the owner or occupier of any premises
within one month is contained in Section 43(1) of the
2003 Act. The only exception to this statutory obligation
D is provided by Section 44 where the licensee is
prevented from giving supply due to cyclone, floods,
storms or other circumstances beyond his control; and
(vi) The legislature has consciously inserted all the
substantive requirements which the person making an
E application for supply of electricity is required to meet,
which has been primarily captured under Sections 43(2),
45, 46, 47, and 48 of the 2003 Act. Therefore, no power
has been endowed upon the State Commission to impose
any other substantive condition in the form of providing
a precondition of clearance of a previous owners’ dues
F on a subsequent owner who seeks a fresh connection.
Any such condition would be in conflict with Section
43.
b. Supply of electricity is with respect to consumer
(i) The reference to “premises” in the definition of
G
“consumer” under Section 2(15) as well as under Section
43 of the 2003 Act is only to fix a situs, that is, to identify
a licensee operating in the area vis-à-vis the property.
The emphasis under Section 2(15) is therefore on the
“person” who is the owner or occupier of the premises;
H and
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 665
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

(ii) Sections 2(15), 43, and 44 refer to “premises” because A
while an ordinary manufacturer or distributor may insist
on the consumer to come to this factory or warehouse
to take the supply of goods, the distribution licensee is
obliged to take the supply to the consumer’s premises.
Therefore, the premises where the supply is to be made
B
had to be necessarily identified.
c. Regulatory regime to recover arrears of electricity dues
a. The provisions of the 1910 Act and 1948 Act do not
empower the Electricity Board to recover the electricity
dues of the previous owner or occupier from the new C
owner or occupier of such premises. The liability to
pay electricity dues is only on the person to whom the
supply of electricity is made. It is a contractual liability;
b. Section 49 of the 1948 Act only enables the Board to
prescribe the conditions of supply in a contract to be D
entered into with the prospective consumer. Such
conditions of supply cannot be termed as rules or
regulations as they are not published in the official
gazette and therefore, cannot have the character of
regulations and are not statutory in character; and
E
c. A condition requiring an applicant to clear the past dues
of a previous consumer before the application for a fresh
connection is considered is manifestly unfair. The arrears
are due to a default committed by a previous consumer
and the negligence of the Electric Utilities which
continued to supply electricity despite default, without F
resorting to its power of disconnection.
d. Subordinate Legislation
a. The liability of one person, whether statutory or
contractual, cannot be enforced against another person
G
unless there is a substantive provision in law to do so.
Such enforcement of liability cannot be provided by a
piece of delegated legislation;
b. Even if it is assumed that such liability can be enforced
by a delegated legislation, the parent law must clearly
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666 SUPREME COURT REPORTS [2023] 9 S.C.R.

A prescribe the power of framing such a piece of
legislation. Neither the 1910 Act nor the 1948 Act
provides any specific provision empowering the
Electricity Board to recover the electricity dues of the
previous owner or occupier of the premises from the
new owner or occupier of premises in question;
B
c. The scheme of the 2003 Act, from Sections 43 to 49,
makes it evident that no specific power has been
conferred upon the State Commission under Section 50
read with Section 181 of the 2003 Act or with the State
under Section 180 of the 2003 Act to add further
C substantive conditions like clearance of past dues of
another consumer; and
d. It is a settled principle of law that for framing any rule
or regulation, a specific source of power must be
provided in the parent legislation.
D
e. Electricity arrears do not constitute a charge over the
premises
a. Electricity dues do not constitute a charge over property
as they do not run with the land. Only a fiscal levy by
E way of statutory exaction could be fastened on land or
any other immovable property. The State Commission
under Section 50 of the 2003 Act can only frame
regulations for supply of electricity and has no power
to provide for any fiscal exaction. Only a state legislation
can provide for a charge on a property by providing for
F levy of a duty on consumption or sale of electricity,
under Entry 53 of List II of the Seventh Schedule;
b. There is no provision under the 2003 Act for creating
charge on the premises and a charge cannot be
introduced by way of Regulations as the subject matter
G is not covered under Section 50 of the 2003 Act;
c. The Conditions of Supply are contractual and therefore
do not constitute a charge under Section 100 of the
Transfer of Property Act 1882. The Conditions of Supply
are contained in a contract and to constitute a charge,
H
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 667
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

it must be registered under Section 17 of the Indian A
Registration Act 1908; and
d. Enforcement of a charge against the property in the
hands of the transferee for consideration without notice
of the charge does not arise. Electricity dues are simply
an unsecured debt. B
f. Civil and Statutory remedies to recover electricity arrears
of the Utilities
a. Under Section 56 of the 2003 Act, the right to disconnect
the supply in default of payment is relatable to the default
committed by the defaulting consumer. Electric Utilities C
cannot recover dues over and above what is provided
for in the Section 56 (2) of the 2003 Act; and
b. To the extent that the monies realised from sale of the
company in liquidation were insufficient to clear the
unsecured debts such as electricity dues, they would D
abate. The Electric Utilities allowed the dues to mount
up instead of taking effective steps to recover the
dues. Conditions of Supply cannot be used to resurrect
a time-barred debt.
g. Implication of an auction-sale of premises on “as is where E
is” basis
(i) A condition such as “as is where is and whatever there
is” is a feature of physical properties and does not extend
to claims that are not charges, mortgages, or other
encumbrances running with the land; and F
(ii) There was no obligation on the applicants to ascertain
the electricity dues and more so in view of the judgement
in Isha Marbles (supra), which held the field then,
and which continues to hold the field in all cases where
there is no statutory imposition of liability for past dues G
of previous owners on subsequent purchasers.
F. Analysis
I. Universal Service Obligation is not absolute

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668 SUPREME COURT REPORTS [2023] 9 S.C.R.

A 27. The Electric Utilities have argued that the duty to supply
electricity under Section 43 of the 2003 Act is not absolute. It has been
submitted that under Section 43, an applicant has to fulfil the obligation
to pay the ‘price’ as determined by the State Commission to become
entitled to receive supply of electricity. The ‘price’, it is urged, includes
application fees as well as arrears of unpaid electricity dues of the
B
previous owner or occupier. The Electric Utilities argue that in case
there are outstanding dues of the previous owner they are entitled to
refuse a new connection or decline to commence the supply of electricity
until the dues owed by the previous owner are cleared. On the contrary,
the auction purchasers have urged that Section 43 obligates the distribution
C licensees to supply electricity when demanded by the auction purchaser.
It is further urged that the ‘price’ in Section 43 can only mean the price
at which electricity is supplied to the distribution licensee, and cannot
include the arrears of the previous owner or occupier of the premises.
28. To contextualise the submissions of counsel, it is appropriate
D to refer to the relevant provisions of the 1910 and 2003 enactments.
Under Section 3 of the 1910 Act, the State Government could grant a
licence to any person to supply energy in any specified area. By virtue
of Section 3(2)(f), the provisions contained in the Schedule stood
incorporated in the licence. Under Section 22 read with Section 3(2)(f)
and Clause VI of the first Schedule, there was an obligation to supply
E electricity on the distribution licensees. Section 22 of the 1910 Act
obligated the licensee to supply energy to every person within the area
of supply on the same terms as those on which any other person in the
same area was entitled. Clause VI provided that the licensee shall supply
energy within one month of a requisition by the owner or occupier of
F any premises situated within the area of supply.
29. Section 43 of the 2003 Act is similar to Section 22 of 1910 Act
read with Clause VI of Schedule I of the latter Act. Part VI of the 2003
Act contains provisions dealing with distribution of electricity by
distribution licensees. Section 2(17) defines a ‘distribution licensee’ as a
G licensee authorised to operate and maintain a distribution system for
supplying electricity to the consumer in their area of supply. Section 43
of the 2003 Act casts a duty on every distribution licensee to supply
electricity to the premises on an application made by the owner or occupier
of such premises. The provision requires the distribution licensee to lay
down its network in a particular area to supply electricity to a consumer,
H who demands supply.
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 669
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

30. The relevant portion of Section 43 reads as follows: A
“43. Duty to supply on request – (1) Save as otherwise provided
in this Act, every distribution licensee, shall, on an application
by the owner or occupier of any premises, give supply of
electricity to such premises, within one month after receipt
of the application requiring such supply: B
***
Explanation – For the purposes of this sub-section,
“application” means application complete in all respects in
the appropriate form, as required by the distribution
licensee, along with the documents showing payment of C
necessary charges and other compliances.
(2) It shall be the duty of every distribution licensee to provide, if
required, electric plant or electric line for giving electric supply to
the premises specified in sub-section (1):
D
Provided that no person shall be entitled to demand, or to continue
to receive, from a licensee a supply of electricity for any premises
having a separate supply unless he has agreed with the licensee
to pay to him such priceas determined by the Appropriate
Commission.”
E
(emphasis supplied)
31. According to Section 43, the distribution licensee is obligated
to supply electricity to the premises of an owner or occupier within a
month of the receipt of an application requiring such supply. The provision
casts a duty on the distribution licensee to supply electricity to the owner
F
or occupier’s premises. Correspondingly, the owner or occupier of the
premises has a right to apply for and obtain electric supply from the
distribution licensee.22 Both the right and the corresponding duty are
imposed by the statute. The owner or occupier of the premises has to
submit an application to avail of the supply of electricity.
32. In Brihanmumbai Electric Supply & Transport G
Undertaking v. Maharashtra Electricity Regulatory Commission,23
a two-judge Bench of this Court observed that the obligation of the
distribution licensee to supply electricity to premises will begin after the
22 Chandu Khamaru v. Nayan Malik, (2011) 12 SCC 314
23 (2015) 2 SCC 438 H
670 SUPREME COURT REPORTS [2023] 9 S.C.R.

A owner or occupier of such premises submits a completed application.
The explanation to Section 43 clarifies that the application must be
complete in all respects along with the necessary documents showing
payment of “necessary charges” and other compliances, as required by
the distribution licensee. Thus, under Section 43, the distribution licensee
is obligated to supply electricity to the premises of an owner or occupier,
B
provided that the owner or occupier pays all charges and complies with
all conditions stipulated by the distribution licensee. Section 43 begins
with the words “Save as otherwise provided in this Act”. Hence, the
operation of Section 43 will also be subject to compliance with the other
provisions of the 2003 Act.
C 33. Section 45 lays down the manner of computation of the price
to be charged by the distribution licensee for supply of electricity under
Section 43. It provides that a distribution licensee may fix charges for
supply of electricity in accordance with the tariffs fixed from time to
time in accordance with the methods and principles specified by the
D concerned State Commission. Under Section 46, a distribution licensee
is empowered to charge from any person who seeks supply of electricity
any expenses reasonably incurred in providing any electric line or electric
plant used for the purpose of giving electricity. Section 47 empowers the
distribution licensee to seek a reasonable security from any person who
requires supply under Section 43. It further provides that the distribution
E licensee can refuse to supply electricity to any person who fails to give
the security deposit. The provision is extracted below:
“47. Power to require security – (1) Subject to the provisions
of this section, a distribution licensee may require any person,
who requires a supply of electricity in pursuance of section 43, to
F give him reasonable security, as may be determined by regulations,
for the payment to him of all monies which may become due to
him –
(a) in respect of the electricity supplied to such person; or

G (b) where any electricity line or electrical plant or electric meter
is to be provided for supplying electricity to such person, in respect
of the provision of such line or plant or meter,
And if that person fails to give such security, the distribution
licensee may, if he thinks fit, refuse to give the supply of
H
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 671
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

electricity or to provide the line or plant or meter for the A
period during which the failure continues.”
(emphasis supplied)
34. Section 47 indicates that a distribution licensee can refuse to
supply electricity under Section 43 if the applicant fails to furnish the
requisite security. Under Section 48, a distribution licensee may require B
the applicant, who requires a supply of electricity in pursuance of Section
43, to accept (i) any restrictions which may be imposed for the purpose
of enabling the distribution licensee to comply with the regulations made
under Section 53; and (ii) any terms restricting any liability of the
distribution licensee for economic loss resulting from negligence of the C
person to whom electricity is supplied. Thus, it is implicit that the
distribution licensee may refuse electricity supply to the applicant until
they accept such terms and restrictions reasonably imposed by the
distribution licensee incidental to the statute.
35. Further, Section 50 empowers the State Commission to specify D
an Electricity Supply Code providing for recovery of electricity charges,
among other things. The Electric Utilities have urged that the duty to
supply electricity is subject to the Electricity Supply Code specified under
Section 50. As mentioned in the preceding paragraphs, an applicant is
required to submit a completed application along with documents showing
the payment of necessary charges and other compliances. The Electricity E
Supply Code can stipulate such other compliances that an applicant has
to observe for getting the supply of electricity under Section 43. Therefore,
reading Section 43 along with Sections 45, 46, 47, 48, and 50, it becomes
evident that the right of an applicant to seek supply of electricity under
Section 43 is not absolute. The right is subject to the payment of charges, F
security deposit, as well as terms and restrictions imposed by the
distribution licensee.
36. The distribution licensee can stipulate such terms and conditions
as it deems necessary when an owner or occupier of the premises
approaches it seeking the supply of electricity. A two-judge Bench of G
this Court in Paschimanchal Vidyut Vitran Nigam (supra) held that a
distribution licensee can stipulate terms and conditions subject to which
it will supply electricity to the applicant which are not arbitrary and
unreasonable.

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672 SUPREME COURT REPORTS [2023] 9 S.C.R.

A 37. The auction purchasers have urged that the “charges” levied
by the distribution licensee are explicitly dealt with by Section 45. It was
further urged that Section 45 does not provide that charges should include
the arrears of the previous owner or occupier of the premises. On the
contrary, the distribution licensees have argued that the term ‘price’ used
in Section 43 is the consideration for the supply of electricity as determined
B
by the State Commission. It has been argued that the arrears of the
previous owner or occupier of the premises is also a ‘price’ determined
by the State Commission and payable at the time of making an application
for the supply of electricity.
38. The words “price”, “tariff”, or “charges” have not been defined
C in the 1910 Act or the 2003 Act. In AP TRANSCO v. Sai Renewable
Power (P) Ltd,24 this Court observed that the term “tariff” has neither
been defined nor explained in the 2003 Act. The Court held that in the
absence of any specific definition in the legislation, recourse has to be
taken to the “meaning attached to these expressions under the general
D law or in common parlance.”25
39. In BSES Ltd. v. Tata Power Co. Ltd.,26 a two-judge Bench
of this Court interpreted ‘tariff’ in the context of the Electricity Regulatory
Commissions Act, 1998. It observed:
“16. The word “tariff” has not been defined in the Act. “Tariff”
E is a cartel of commerce and normally it is a book of rates. It will
mean a schedule of standard prices or charges provided to the
category or categories of customers specified in the tariff.”
40. The proviso to Section 43(2) further refers to the “price”
payable by an applicant to demand or to continue to receive the supply
F of electricity from a distribution licensee. The “price” is to be determined
by the appropriate commission. This “price” is the consideration, as
determined by the State Commission, that an applicant pays for receiving
a supply of electricity.
41. The term “price” has to be given a broad meaning to include
G all the ‘tariffs’ and ‘charges’ that may be determined by the appropriate
commission. This includes the ‘charges’ fixed under Section 45 by the
appropriate commission from time to time and the ‘charges’ that a
24 (2011) 11 SCC 34
25 (2011) 11 SCC 34
26 (2004) 1 SCC 195
H
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 673
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

distribution licensee may impose under Section 46 to recover any A
reasonable expenditure. The ambit of the term ‘price’ is wide enough to
also include the statutory dues that the State Commission decides to
enact by way of regulations under Section 50.
42. Thus, the duty to supply electricity under Section 43 is not
absolute, and is subject to the such charges and compliances stipulated B
by the distribution licensees as part of the application.
II. Duty to supply electricity is with respect to consumer
43. The Electric Utilities urge that the duty to supply electricity is
with respect to the premises and not to an individual. They refer to the
definition of ‘consumer’ under Section 2(15) and to Section 43 of the C
2003 Act. Further, it was urged that Section 50 and Section 181(2)(x) of
the 2003 Act enable the distribution licensee to provide for payment of
dues of electricity supplied to the premises if a reconnection or new
connection is sought for the same premises. Contrariwise, the auction
purchasers have submitted that the consumption of electricity is always D
by the owner or occupier of the premises through appliances and
apparatus installed within the premises. The reference to premises in
the definition of ‘consumer’ under Section 2(15) as well as Section 43 of
the 2003 Act is, it is urged, only to fix a situs for the supply of electricity
to the owner or occupier of the premises.
E
44. Electricity is a movable good because it can be transmitted,
transferred, delivered, and possessed like any other movable property. 27
This position of law was established by a Constitution Bench of this
Court in State of AP v. National Thermal Power Corporation Ltd.28
In Paschimanchal Vidyut Vitaran Nigam (supra) a two-judge bench
of this Court held that the supply of electricity to a consumer is a sale of F
goods. The charges paid by the consumer to the distribution licensee is
essentially the price paid for goods supplied and consumed. The
consumption of electricity by a consumer is always effected through
equipment or appliances installed within the premises.
45. Section 2(15) of the 2003 Act defines the expression G
‘consumer’ as follows:

27 Commissioner of Sales Tax, Madhya Pradesh, Indore v. Madhya Pradesh Electricity
Board, Jabalpur (1969) 1 SCC 200
28 (2002) 5 SCC 203, paragraph 20.
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674 SUPREME COURT REPORTS [2023] 9 S.C.R.

A “(15) “consumer” means any person who is supplied with
electricity for his own use by a licensee or the Government or
by any other person engaged in the business of supplying electricity
to the public under this Act or any other law for the time being in
force and includes any person whose premises are for the
time being connected for the purpose of receiving electricity
B
with the works of a licensee, the Government or such other
person, as the case may be;”
(emphasis supplied)
46. The definition of “consumer” under Section 2(15) of the 2003
C Act is similar to the definition of “consumer” in the 1910 Act. The definition
consists of two limbs:
(i) any person who is supplied with electricity for their own use;
and
(ii) any person whose premises are for the time being connected
D for the purposes of receiving electricity, irrespective of whether
or not such person is supplied with electricity for his own
use. 29
The first limb of the definition is prefaced with “means” while the
second limb is prefaced with “includes”. The definition is thus exhaustive
E of the ambit of the expression defined. The inclusive part is intended to
expand the ambit of the initial limb of the definition.
47. In Jivendra Nath Kaul v. Collector/District Magistrate30,
a two judge Bench of this Court held that the meaning of the phrase “for
the time being” means at the moment or the existing position. The
F reference to premises in the second limb connotes that the demand for
guaranteed charges or dues will incur even if the owner or occupier has
stopped consuming power for the time being, but the premises remain
connected. The second limb clarifies that a consumer who commences
receiving power at the premises will continue to remain a consumer
even if they stop consuming power for the time being, so long as the
G
premises are connected to the power system. The second limb
encompasses a variety of foreseeable and practical situations. For
example, the consumer may have rented out the premises to a tenant. In

29 Uttar Pradesh Power Corporation Limited v. Anis Ahmad, (2013) 8 SCC 491
H
30 (1992) 3 SCC 576
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 675
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

this situation, the consumer continues to remain a consumer as the A
premises are connected for the time being for the purposes of receiving
the supply of electricity, though the consumer may not themselves be
consuming electricity (the consumption being by the tenant). Here, the
distribution licensee demands charges incurred from the consumer, even
though the electricity is being consumed by the tenant. Another situation
B
contemplated under the second limb is where the consumer is unable to
consume electricity due to circumstances such as accident or strike. In
this case, as long as the premises of the consumer are connected to the
power system, they will have to pay the demand charges and minimum
guaranteed charges stipulated by the distribution licensee.
48. We are unable to accept the submission of Electric Utilities C
that the second limb of Section 2(15) connotes a supply of electricity to
premises, irrespective of a change in the owner or occupier. The 2003
Act provides an inclusive definition of ‘premises’ under Section 2(51).
According to the definition, premises include land, building, or structure.
The second limb goes only so far as to say that when electricity is supplied D
to any person at a particular land, building, or structure, such person will
continue to remain a consumer, even though they are not consuming
electricity, so long as the electricity connection exists. The expression
‘premises’ used in the second limb identifies the place where the supply
of electricity has to be made.
E
49. It would be material to refer to some other definitions under
the 2003 Act which emphasise that supply of electricity is with respect
to consumer:
“2. Definitions.- In this Act, unless the context otherwise requires,-
*** F
(17) “distribution licensee” means a licensee authorised to operate
and maintain a distribution system for supplying electricity to
the consumers in his area of supply;
***
G
(19) “distribution system” means the system of wires and
associated facilities between the delivery points on the transmission
lines or generating station connection and the point of connection
to the installation of the consumers;
***
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676 SUPREME COURT REPORTS [2023] 9 S.C.R.

A (61) “service line” means any electric supply line through which
electricity is, or is intended to be, supplied -
(a) to a single consumer either from a distributing main or
immediately from the Distribution Licensee’s premises; or
(b) from a distributing main to a group of consumers on the
B same premises or on contiguous premises supplied from the
same point of the distribution main;
***
(70) “supply”, in relation to electricity, means the sale of
C electricity to a licensee or consumer;”
(emphasis supplied)
50. The definition of ‘supply’ specifically states that supply means
the sale of electricity to a consumer. The said definition does not indicate
that supply of electricity is vis-a-vis the premises of the consumer.
D Considering the overall scheme of the 2003 Act, the supply of electricity
is to the consumer and not the premises.
51. Section 43 of the 2003 Act obligates a distribution licensee to
supply electricity “on an application by the owner or occupier of any
premises”. Under the provision, the right to obtain a supply of electricity
E is vested with the owner or occupier of the premises. Invariably, such
owner or occupier means the consumer under Section 2(15). As held in
Brihanmumbai Electric Supply & Transport Undertaking (supra),
the duty to supply electricity comes into play only on an application made
by the owner or occupier of the premises. Hence, the term “premises”
has to be contextualised and understood with respect to the preceding
F
portion, that is, the owner or occupier of the premises.
52. The duty to supply electricity under Section 43 is only with
respect to the owner or occupier of the premises, and not the premises,
as it is the owner or occupier who has the statutory right to “demand”
electricity for the premises under their use or occupation. Further, it is
G the applicant who has to fulfil all the statutory conditions laid down under
the 2003 Act to become entitled to get supply of electricity to their
premises. The applicant has to pay the necessary charges and comply
with all terms and conditions as determined by the appropriate commission
for the supply of electricity.
H
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 677
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

53. It is true that Sections 43 and 44 of the 2003 Act talk about A
supply of electricity to premises. However, the use of such phrases is
borne out of the practical consideration of supply of electricity. Unlike
other goods, a distribution licensee cannot insist that the consumer come
to their factory or warehouse to receive the supply of electricity. The
distribution licensee necessarily has to lay down special infrastructure
B
such as electricity lines and transformers to transmit electricity and supply
it directly to the consumer, at their premises. On an application, the
distribution licensee is statutorily obliged to supply electricity to the
consumer. Consequently, the place where the supply of electricity is to
be made has to be necessarily identified. Thus, Section 43 and 44 refer
to the consumer’s premises to fix the situs for the purpose of supplying C
electricity.
54. Section 56 provides that it is the liability of the consumer to
pay the charge for electricity in respect of the supply of electricity. Under
Section 56 the duty of effecting the payment of charges for electricity is
on a person, that is, the consumer. Further, Section 56(2) specifically D
contains the expression “no sum due from any consumer”. Section 126
also uses the words “the electricity charges payable by such person or
any other person benefited by such use.” Thus, the overall scheme of
the 2003 Act makes it evident that only a consumer can be held liable for
default in payment of electricity dues or charges.
E
55. Under the 2003 Act, the Central government has enacted
various rules and regulations for carrying out the provisions of the Act.
The government notified the Electricity (Rights of Consumers) Rules,
202031 laying down the rights of the consumers of electricity. The Rules
detail the rights of consumers and obligations of distribution licensees;
release of new connections; metering arrangements; billing and payment; F
disconnection and reconnection; grievance redressal mechanism, among
others. The Rules define an ‘applicant’ as an owner or occupier of any
premises who files an application form with a distribution licensee for
supply of electricity. The Rules defines ‘point of supply’ to mean the
point, as may be specified by the State Commission, at which a consumer G
is supplied electricity. The Rules make it evident that electricity is supplied
to the consumer.
56. Thus, it is always the consumer who is supplied electricity and
is held liable for defaulting on payment of dues or charges for supply of
31 “Rules” H
678 SUPREME COURT REPORTS [2023] 9 S.C.R.

A electricity. Perforce, the premises cannot be held to be a defaulter and
no dues can be attached to the premises of the consumer.
III. Whether electricity connection sought by a subsequent
owner constitutes a reconnection or fresh connection
57. Another issue before us, as argued by the counsel, is whether
B the connection sought by a subsequent owner constitutes a reconnection
or fresh connection. In IshaMarbles (supra), the Electricity Board had
disconnected electricity supplied to the erstwhile owner pursuant to its
power under Section 24 of the 1910 Act. The Electricity Board insisted
upon the auction purchaser paying the arrears owed by the erstwhile
C owner as a condition precedent to provide an electricity connection. The
Board did not place reliance on any statutory conditions of supply. This
Court observed that the law, as it stood then, was inadequate to enforce
such a liability. The Court further held that a connection sought by a
subsequent purchaser should be regarded as a reconnection:

D “49.It is important to note that though the purchasers asked
for electricity connection as a new connection it cannot be
regarded as a new connection. It is only a reconnection
since the premises had already been supplied with electrical
energy. Such a supply had been disconnected owing to the
default of the consumer. That consumer had bound himself to
E the Board to pay the dues. He also agreed to abide by the condition
as stipulated in the Act and the Rules including the payment of the
dues.”
(emphasis supplied)

F 58. This Court further went on to hold that a distribution licensee
cannot make the auction-purchaser liable when seeking reconnection of
electricity supply for the same premises. According to the Court, this
was not feasible considering the fact that “with change of every
ownership new connections have to be issued [which] does not
appear to be the correct line of approach as such situation is brought
G by the inaction of the Electricity Board in not recovering the arrears
as and when they fall due or not providing itself by adequate
deposits.” However, this Court also conceded that liability of previous
owners could be fastened on auction-purchasers if the law so prescribed.
59. In Gujarat Inns (supra), another three-judge Bench of this
H Court held that the connection sought by auction-purchasers of properties
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 679
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

would constitute a fresh connection. The Court held that in case of a A
fresh connection, the auction purchasers cannot be held liable to clear
the arrears incurred by the previous owners in the absence of any specific
statutory provision. It was observed:
“3. In our opinion, the present two cases are cases of fresh
connection. The learned counsel for the respondents (auction- B
purchasers) have stated that they have taken fresh connections
and they have no objection if their connections are treated as
fresh connections given on the dates on which the supply of
electricity was restored to the premises. We are clearly of the
opinion that in case of a fresh connection though the
premises are the same, the auction-purchasers cannot be C
held liable to clear the arrears incurred by the previous
owners in respect of power supply to the premises in the
absence of there being a specific statutory provision in that
regard. Though we find some merit in the submission of the
learned counsel for the appellant calling for reconsideration of the D
wide propositions of law laid down in Isha Marbles case [(1995)
2 SCC 648] we think the present one is not a case for such exercise.
We leave the plea open for consideration in an appropriate case.”
(emphasis supplied)
60. In Isha Marbles (supra), a three-judge Bench of this Court E
held that an application for supply of electricity to the same premises is
to be regarded as a reconnection. This Court, while interpreting the
provisions of the 1910 Act, gave its reasoning on the assumption that the
supply of electricity is with respect to premises and not the consumer.
However, the 2003 Act has statutorily clarified the position that supply F
of electricity is with respect to the consumer. It necessarily follows that
when a new owner or occupier of the premises applies for supply of
electricity in terms of Section 43 of the 2003 Act, it will constitute a
fresh connection, regardless of the fact that the premises for which the
electricity is sought was being supplied with electricity previously. An
application for supply of electricity can be categorised as reconnection G
only when the same owner or occupier of the premises, who was already
a consumer, applies for supply of electricity with respect to the same
premises in case the electricity supply is disconnected.
61. We need to highlight that the 2003 Act contemplates a synergy
between the consumer and premises. Under Section 43 of the 2003 Act, H
680 SUPREME COURT REPORTS [2023] 9 S.C.R.

A the owner or occupier of premises can seek a supply of electricity for
particular premises. Perforce, when electricity is supplied, the owner or
occupier becomes a consumer only with respect to those particular
premises for which electricity is sought and provided. For example, when
a person owning an apartment in a residential complex applies for supply
of electricity to such an apartment, they become a consumer only with
B
respect to the apartment for which the application is made and to which
electricity is supplied. Such a person may own another apartment to
which electricity may already be supplied, but they will be considered a
separate consumer with respect to the second apartment. For an
application to be considered as a ‘reconnection’, the applicant has to
C seek supply of electricity with respect to the same premises for which
electricity was already provided. Even if the consumer is the same, but
the premises are different, it will be considered as a fresh connection
and not a reconnection.
62. In Gujarat Inns. (supra), this Court held that an application
D for electricity by an auction-purchaser will constitute fresh connection
even though the premises are the same. The reasoning is based on the
correct assumption that supply of electricity is with respect to the consumer,
and not the premises. Therefore, even if the premises may be the same
to which electricity had already been supplied, it will be considered as a
fresh connection in the situation where a different applicant, in that case
E an auction-purchaser, applies for supply of electricity.
IV. Regulatory power of the Electricity Boards/ State
Commissions
63. The Electric Utilities have submitted that: (i) Section 49 of the
F 1948 Act empowered the Board to supply electricity upon such terms
and conditions as it thinks fit; (ii) the phrase “regulate” in Section 79 of
the 1948 Act has a wider implication allowing the State Commission to
do everything necessary to prescribe the principles governing the supply
of electricity; (iii) the Electricity Supply Code notified under Section 50
read with Section 181(2)(x) of the 2003 Act governs all matters relating
G to the supply of electricity to premises; and (iv) the Conditions of Supply
which provide for payment of outstanding dues of the previous consumer
have a clear nexus to the scheme of the 2003 Act and the objectives
sought to be achieved.
64. From the other side, the auction purchasers have urged that:
H (i) the provisions of the 1910 Act, 1948 Act, and the 2003 Act do not
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 681
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

empower the Electricity Board or, as the case may be the distribution A
licencee to recover the arrears of electricity of the previous consumer
from the new owner or occupier of the premises; and (ii) the conditions
of supply prescribed under the 1948 Act do not have the character of
regulations and are not statutory.
65. Section 2(h) of the 1910 Act defined “licensee” as any person B
licensed under Part II to supply energy. Section 21 provided that a
distribution licensee shall not interfere with the use of energy by any
person. Section 21(2) empowered the licensee to make conditions for
the purpose of regulating its relations with the consumer with the previous
sanction of the State Government.
C
66. The 1910 Act did not include the State Electricity Board within
the definition of “licensee”. Section 26 of the 1948 Act states that the
Board shall, in respect of the whole State, have all the powers and
obligations of a licensee under the 1910 Act. The first proviso specified
that certain provisions of the 1910 Act relating to the duties and obligations
of a licensee shall not be applicable to the Board. In its decision in State D
of Uttar Pradesh v. Hindustan Aluminium Corporation32 this Court
analysed the interconnection between Section 26 of the 1948 Act and
Section 22 of the 1910 Act. The court held that the obligation under
Section 22 of the 1910 Act to supply energy to every person within the
area of supply is not fastened to the Board. Although Clause VI of E
Schedule to the 1910 Act also mandates the licensee to supply electricity
on demand, the second proviso specifies that the said clause is applicable
to the Board only when the distribution mains have been laid by the
Board and the supply through any of them has commenced.
67. Under Section 21 of the 1910 Act, the Supply Licensee F
prescribed conditions with the previous sanction of the state government.
Similarly, the Boards could also prescribe conditions under Section 21 of
the 1910 Act by virtue of Section 26 of the 1948 Act.
68. Section 49 of the 1948 Act read as follows:
“49. Provisions for the sale of electricity by the Board to G
persons other than licensees.- (1) Subject to the provisions of
this Act and of regulations, if any made in this behalf, the Board
may supply electricity to any person not being a licensee

32 (1979) 3 SCC 229 H
682 SUPREME COURT REPORTS [2023] 9 S.C.R.

A upon such terms and conditions as the Board thinks fit and
may for the purposes of such supply frame uniform tariffs.”
***
(emphasis supplied)
B Under the 1948 Act, the Electricity Boards were empowered to
prescribe terms and conditions of supply under Section 49 read with
Section 79(j). The Board was empowered to fix such terms and conditions
as it thinks fit for supply of electricity to any person not being a licensee.
Section 79 permitted the Board to make regulations providing for the
principles governing the supply of electricity by the Board to persons
C other than licensees under Section 49:
“79. Power to make regulations.- The Board may by notification
in the Official Gazette, make regulations not inconsistent with this
Act and the rules made thereunder to provide for all or any of the
following matters, namely:-
D
***
(j) principles governing the supply of electricity by the Board to
persons other than licensees under section 49;”
Clause (j) of Section 79 empowered the Board to make regulations
E prescribing the principles governing the supply of electricity to consumers.
According to Section 79A, any regulation made by the Board had to be
laid before the State Legislature. Thus, the conditions of supply framed
by the Board under section 49 read with section 79 and section 79A
possessed a statutory nature and would be binding on consumers.
F 69. It has been a consistent position in law that the conditions of
supply stipulated by the licensees or Boards have a statutory character.33
A two-judge Bench of this Court, in Jagdamba Paper Industries (P)
Ltd v. Haryana State Electricity Board,34 was dealing with a challenge
to the unilateral enhancement of security by the Board under the
agreement with consumers of electric energy. This Court held that the
G Board has been conferred with statutory powers under section 49(1) of
the 1948 Act to determine the conditions on the basis of which supply is
to be made. Similarly, in Bihar State Electricity Board v. Parmeshwar
33 Punjab State Electricity Board v. Bassi Cold Storage, Kharar and Another, 1994 Supp
(2) SCC 124
34 (1983) 4 SCC 508
H
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 683
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

Kumar Agarwala35, a two-judge Bench of this Court held that the terms A
and conditions on which the Board supplies electricity to a consumer
have a statutory character.
70. In Ferro Alloys Corpn. Ltd v. A P State Electricity Board36
a two-judge Bench of this Court upheld the validity of Section 49 of the
1948 Act. The Court observed that the terms and conditions notified B
under Section 49 must relate to the object and purpose for which they
were issued. There, the Court upheld the authority of the Board to
prescribe a security deposit in the following terms:
“102. [...] Under the regulations framed by the Board in exercise
of powers of Section 49 read with Section 79(j) the consumer is C
only entitled and the Board has an obligation to supply energy to
the consumer upon such terms and conditions as laid down in the
regulations. If, therefore, the regulations prescribed a security
deposit that will have to be complied with. It also requires to be
noticed under Clause VI of the Schedule to the Electricity Act
that the requisition for supply of energy by the Board is to be D
made under proviso (a) after a written contract is duly executed
with sufficient security. This, together with the regulations stated
above, could be enough to clothe it with legal sanction.”
71. In Hyderabad Vanaspathi (supra), a three-judge Bench of
this Court had to decide upon the validity of Condition 39 of the “Terms E
and Conditions of Supply” prescribing an adjudicatory machinery for
assessing and levying penal damages. This Court considered the legal
provisions under the 1910 Act and 1948 Act to hold that terms and
conditions notified under Section 49 of the latter enactment were valid
and had statutory force. The relevant paragraph is extracted below: F
“20. We have already seen that Section 49 of the Supply Act
empowers the Board to prescribe such terms and conditions as it
thinks fit for supplying electricity to any person other than a licensee.
The Section empowers the Board also to frame uniform tariffs
for such supply. Under Section 79(j) the Board could have made G
regulation therefor but admittedly no regulation has so far been
made by the Board. The Terms and Conditions of Supply were
notified in BPMs No. 690 dated 17-9-1975 in exercise of the
35 (1996) 4 SCC 686
36 1993 Supp (4) SCC 136 H
684 SUPREME COURT REPORTS [2023] 9 S.C.R.

A powers conferred by Section 49 of the Supply Act. They came
into effect from 20-10-1975. They were made applicable to all
consumers availing supply of electricity from the Board. The
Section in the Act does not require the Board to enter into
a contract with individual consumer. Even in the absence
of an individual contract, the Terms and Conditions of
B
Supply notified by the Board will be applicable to the
consumer and he will be bound by them. Probably in order
to avoid any possible plea by the consumer that he had no
knowledge of the Terms and Conditions of Supply,
agreements in writing are entered into with each consumer.
C That will not make the terms purely contractual. The Board
in performance of a statutory duty supplied energy on
certain specific terms and conditions framed in exercise of
a statutory power. Undoubtedly the terms and conditions
are statutory in character and they cannot be said to be
purely contractual.”
D
(emphasis supplied)
72. The above discussion shows that Conditions of Supply were
notified: first, by the Supply Licensee and Electricity Boards under Section
21 of 1910 Act; and second, by the Electricity Boards under Section 49
E of 1948 Act. The decision in Hyderabad Vanaspathi Ltd (supra) is
illustrative of the fact that the courts have upheld the validity of the
Conditions of Supply notified by the Electricity Boards. Significantly, the
decision in Hyderabad Vanaspati Ltd. (supra) holds that the power of
the Board to formulate terms and conditions under Section 49 of the
1948 Act is distinct from the power to make regulations embodied under
F section 79 of the said Act. Therefore, the terms and conditions of supply
notified by the Board under Section 49, although in the nature of
subordinate legislation, were not required to be placed before the State
Legislature under section 79A of the 1948 Act. In that case, it was also
held that statutory conditions could be invalidated only if they were in
G conflict with any provisions of the 1948 Act or the Constitution.
73. The auction-purchasers have referred to India Thermal
Power Ltd v. State of MP37 to argue that the conditions of supply are
not statutory, but form a part of the contract between the Electricity

H
37 (2000) 3 SCC 379
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 685
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

Board and the consumer. Hence, it was submitted that these contractual A
terms cannot be enforced by the Board against the new owner or
occupier of the premises. In India Thermal Power Ltd (supra), the
issue before the two-judge Bench was whether the State Government
can alter the terms of the Power Purchase Agreement entered into under
Sections 43 and 43-A of the 1948 Act. Section 43 empowered the Board
B
to enter into an arrangement with any person for purchase or sale of
electricity. Section 43-A provided that the tariff for the sale of electricity
by a generating company shall be determined in accordance with the
norms regarding the operation and plant-load factor as determined by
the Central Government from time to time. It was in light of these
provisions, that this Court observed that every provision of an agreement C
entered into between a generating company and Electricity Board in
exercise of the enabling power conferred under Sections 43 and 43-A
does not render the entirety of the contract statutory. The relevant
observations are extracted below:
“11. [...] Merely because a contract is entered into in exercise of D
an enabling power conferred by a statute that by itself cannot
render the contract a statutory contract. If entering into a
contract containing the prescribed terms and conditions is
a must under the statute then that contract becomes a
statutory contract. If a contract incorporates certain terms
and conditions in it which are statutory then the said contract E
to that extent is statutory. A contract may contain certain other
terms and conditions which may not be of a statutory character
and which have been incorporated therein as a result of mutual
agreement between the parties. Therefore, the PPAs can be
regarded as statutory only to the extent that they contain F
provisions regarding determination of tariff and other
statutory requirements of Section 43-A(2). Opening and
maintaining of an escrow account or an escrow agreement are
not the statutory requirements and, therefore, merely because
PPAs contemplate maintaining escrow accounts that obligation
cannot be regarded as statutory.” G

(emphasis supplied)
74. We are of the opinion that the reasoning of this Court in India
Thermal Power Ltd (supra) actually supports the arguments of the
Electric Utilities. As evinced from Hyderabad Vanaspathi (supra), the H
686 SUPREME COURT REPORTS [2023] 9 S.C.R.

A conditions of supply enacted by the Boards have a statutory character.
Therefore, any condition enacted under Section 49 of the 1948 Act,
specifically one requiring the new owner to clear the arrears of the
previous owner as a precondition to availing electricity supply, will have
a statutory character. When such a condition is incorporated as part of a
contract, such contract also attains a statutory character and the liability
B
contained therein becomes a statutory liability, which can be enforced
by the utilities against third parties, including the new owners of the
premises in question.
75. The next question that comes up for consideration is whether
the Electric utilities can enact a condition providing for recoupment of
C electricity arrears of a previous owner from the new owner. Under the
1948 Act, the Board could enact terms and conditions for the supply of
electricity under Section 49 read with Section 79(j). This Court has held
on many occasions that the term ‘regulate’ is to be given a wide
interpretation allowing the performance of everything necessary for the
D organised implementation, development, and conduct of business. In
Deepak Theatre v. State of Punjab38 a three-judge Bench of the
Supreme Court held that the power to regulate implies the power to
prescribe and enforce all such proper and reasonable rules necessary
for conduct of business. It was held:
E “3. It is settled law that the rules validly made under the Act, for
all intents and purposes, be deemed to be part of the statute. The
conditions of the licence issued under the rules form an integral
part of the statute. The question emerges whether the word
regulation would encompass the power to fix rates of admission
and classification of the seats. The power to regulate may include
F the power to license or to refuse the licence or to require taking
out a licence and may also include the power to tax or exempt
from taxation, but not the power to impose a tax for the revenue
in rule making power unless there is a valid legislation in that
behalf. Therefore, the power to regulate a particular business
G or calling implies the power to prescribe and enforce all
such proper and reasonable rules and regulations as may
be deemed necessary to conduct the business in a proper
and orderly manner. It also includes the authority to
prescribe the reasonable rules, regulations or conditions

H
38 1992 Supp (1) SCC 684
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 687
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

subject to which the business may be permitted or A
conducted. A conjoint reading of Section 5, Section 9, Rule 4 and
condition 4-A gives, therefore, the power to the licensing authority
to classify seats and prescribe rates of admission into the cinema
theatre.”
(emphasis supplied) B
39
76. In K Ramanathan v. State of Tamil Nadu a three-judge
Bench of this Court held that the word “regulation” does not have a rigid
or inflexible meaning. This Court observed that “power to regulate carries
with it full power over the thing subject to regulation and in absence of
restrictive words, the power must be regarded as plenary over the entire C
subject.” The Constitution Bench in V S Rice and Oil Mills v. State of
Andhra Pradesh40 also observed that the word “regulate” is of wide
import.
77. The above analysis must guide the interpretation of Section
49 read with Section 79(j) of the 1948 Act which empowered the Board D
to enact such terms and conditions as the Board thinks fit. This power of
the Board would extend to enacting conditions providing for recovery of
dues of the erstwhile owner from the new owner as a precondition for
supply of electricity. Further, this Court has consistently upheld the
Conditions of Supply providing for recoupment of arrears of a previous
owner from the new owner as a pre-condition for supply of electricity. A E
two-judge bench of this Court in Haryana State Electricity Board v.
Hanuman Rice Mills, Dhanauri41, while summarising the position of
law laid down in ParamountPolymers (supra) and Paschimanchal
Vidyut Vitran Nigam Ltd. (supra), observed that the supplier can recover
the arrears of electricity dues of the previous owner or occupier from F
the purchaser of the property if the statutory rules or terms and conditions
of supply which are statutory in character authorise the same:
“12. The position therefore may be summarised thus:
(i) Electricity arrears do not constitute a charge over the property.
Therefore in general law, a transferee of a premises cannot be G
made liable for the dues of the previous owner/occupier.

39 (1985) 2 SCC 116
40 (1964) 7 SCR 456
41 (2010) 9 SCC 145
H
688 SUPREME COURT REPORTS [2023] 9 S.C.R.

A (ii) Where the statutory rules or terms and conditions of
supply which are statutory in character, authorise the
supplier of electricity to demand from the purchaser of a
property claiming reconnection or fresh connection of
electricity, the arrears due by the previous owner/occupier
in regard to supply of electricity to such premises, the
B
supplier can recover the arrears from a purchaser.”
(emphasis supplied)
78. In Paramount Polymers (supra), a two-judge Bench of this
Court was called upon to decide the validity of clause 21-A of Terms
C and Conditions of Supply which provided that no fresh connection in
respect of the premises would be given to a purchaser unless the purchaser
cleared the amount that was left in arrears by the previous consumer.
The Court held that it was within the power of the Electricity Board to
insert clause 21-A in the Terms and Conditions of Supply under section
49 of the Supply Act:
D
“15. […] Under Section 49 of the Supply Act, the licensee or
rather, the Electricity Board, is entitled to set down the Terms and
Conditions of Supply of electrical energy. In the light of the power
available to it, also in the context of Section 79(j) of the Supply
Act, it could not be said that the insertion of clause 21-A in
E the Terms and Conditions of Supply of electrical energy is
beyond the power of the appellant.”
(emphasis supplied)
79. As regards the 2003 Act, the Electric Utilities submit that
F Section 50 read with Section 181(2)(x) authorises the State Commission
to frame the conditions governing Electricity Supply enabling recovery
of electrical charges, including the electricity arrears of the previous
owner from the new owner. The auction purchasers concede that Section
50 of the 2003 Act is exhaustive, but contend that it does not enable the
State Commission to lay down conditions for recovery of electricity
G arrears of the previous owner. To comprehensively analyse the above
submission, it is necessary to refer to the relevant provisions under the
2003 Act.
80. Section 2(24) of the 2003 Act defines “Electricity Supply Code”
to mean the Electricity Supply Code specified under Section 50. Section
H 50 reads as follows:
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 689
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

“50. The Electricity Supply Code – The State Commission A
shall specify an Electricity Supply Code to provide for recovery
of electricity charges, intervals for billing of electricity charges,
disconnection of supply of electricity for non-payment
thereof, restoration of supply of electricity, measures for
preventing tampering, distress or damage to electric plant or
B
electrical line or meter, entry of distribution licensee or any person
acting or his behalf for disconnecting supply and removing the
meter, entry for replacing, altering or maintaining electric lines or
electrical plants or meter and such other matters.”
(emphasis supplied)
C
81. Section 50 of the 2003 Act specifies that the State Commission
shall specify an Electricity Supply Code. Section 2(64) defines “State
Commission” as the State Electricity Regulatory Commission constituted
under Section 82(1). The State Commission is authorised to notify the
Electric Supply Code under section 181(2)(x). The use of expressions
such as “recovery of electricity charges”, “disconnection of supply”, D
“restoration of supply”, under Section 50 indicate that the scope of the
regulatory powers of the State Commission under the said provision is
wide enough to govern all matters relating to the supply of electricity to
the premises.
82. The 2003 Act lays down the legislative framework for E
generation, transmission, distribution, trading, and use of electricity in
India. In the process, the Parliament has also conferred discretion on
the regulatory authorities, particularly the Central Commission and State
Commission, to work out further details within the framework of the
legislative policy laid down in the legislation. While making subordinate F
legislation, the delegated authority has to act within the confines of the
plenary legislation.42 The rules or regulations enacted by the Central
Commission or State Commission cannot override the 2003 Act by
stipulating inconsistent provisions or by supplanting the parent statute.
83. The 2003 Act empowers the State Commission to make G
regulations on matters specified under Section 181(2). In PTC India
Ltd. v. Central Electricity Regulatory Commission43 a Constitution
Bench of this Court held that regulations can be framed by State
42 JK Industries Ltd. v. Union of India, (2007) 13 SCC 673
43 (2010) 4 SCC 603 H
690 SUPREME COURT REPORTS [2023] 9 S.C.R.

A Commissions so long as they satisfy two conditions: first, they must be
consistent with the provisions of Act; and second, they must be made
for carrying out the provisions of the Act. The Court held:
“28. The 2003 Act contemplates three kinds of delegated
legislation. Firstly, under Section 176, the Central Government is
B empowered to make rules to carry out the provisions of the Act.
Correspondingly, the State Governments are also given powers
under Section 180 to make rules. Secondly, under Section 177,
the Central Authority is also empowered to make regulations
consistent with the Act and the rules to carry out the provisions of
the Act. Thirdly, under Section 178, the Central Commission can
C make regulations consistent with the Act and the rules to carry
out the provisions of the Act. SERCs have a corresponding power
under Section 181. The rules and regulations have to be placed
before Parliament and the State Legislatures, as the case may be,
under Sections 179 and 182. Parliament has the power to modify
D the rules/regulations. This power is not conferred upon the State
Legislatures. A holistic reading of the 2003 Act leads to the
conclusion that regulations can be made as long as two
conditions are satisfied, namely, that they are consistent
with the Act and that they are made for carrying out the
provisions of the Act.”
E
(emphasis supplied)
84. The scheme of the 2003 Act makes it evident that the
regulatory powers of the State Commission under section 181(2) are of
wide import. The Commission has certain plenary powers to regulate on
F matters contained in section 181(2), including Electric Supply Code under
Section 50. Accordingly, the Commission can notify a Supply Code
governing all the matters pertaining to supply of electricity such as
“recovery of charges”, “disconnection of supply” and “restoration of
supply”. In our opinion, such an authority also extends to stipulating
conditions for recovery of electricity arrears of previous owners from
G new or subsequent owners.
85. In Paschimanchal Vidyut Vitran Nigam (supra), a two-judge
Bench was considering the legality of the actions of the appellant licensee
to recover electricity dues from the purchaser of subdivided plots. Clause
4.3 of the Uttar Pradesh Electricity Supply Code stipulated that a new
H
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 691
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

connection to subdivided premises shall be given only after the share of A
the outstanding dues attributed to such premises is duly paid by the
applicant. This Court held that a distribution licensee can stipulate such
terms necessary for supply of electricity, including that the arrears due
in regard to the supply of electricity made to the premises when they
were in the occupation of the previous owner or occupant, should be
B
cleared before the electricity supply is restored or a fresh connection is
provided to the premises. Therefore, a condition enabling the distribution
licensee to insist on the clearance of the arrears of electricity dues of
the previous consumer before resuming electricity supply to the premises
is valid and permissible under the scheme of the 2003 Act.
86. The next question that arises for consideration is whether a C
regulation providing for recouping the arrears of a previous consumer
from the subsequent owner has a reasonable nexus with the provisions
of the 2003 Act. Section 42 of the 2003 Act requires the distribution
licensee to develop and maintain an efficient, coordinated, and economical
distribution system in their area of supply to supply electricity in D
accordance with the provisions of the said Act. A distribution licensee is
an intermediary, performing the function of conveying supply of electricity
from generating companies to the consumer, at their premises. In order
to provide a supply of electricity to consumers, a distribution licensee is
required to lay down infrastructure such as electricity lines, transformers,
and other equipment. The nature of the supply of electricity also depends E
upon the type of consumer as well their needs. The licensee has to
make a significant capital outlay for creating the necessary infrastructure
as well as operation and maintenance costs to keep the infrastructure in
readiness according to Section 42. The licensees are required to maintain
the infrastructure even if the consumer does not consume electricity. F
They are also required to pay the salaries of their employees and pay
the dues of electricity generation and transmission companies.
87. The 2003 Act has been enacted to promote the development
of the electricity industry as well as to protect the interests of the
consumers and to ensure the supply of electricity to all areas. The Supply G
Conditions providing for recoupment of electricity dues of a previous
consumer from a new owner are necessary to recover the costs incurred
for laying down the infrastructure as well as the ongoing current liabilities
towards the electricity generation and transmission companies. In the
absence of such conditions, it may be difficult for the distribution licensees
H
692 SUPREME COURT REPORTS [2023] 9 S.C.R.

A to recover defaulted payments, adding to the revenue deficits. This may
adversely impact the financial health of the distribution licensees to the
detriment of the interests of the consumers.
88. In Paschimanchal Vidyut Vitran Nigam (supra), this Court
observed that a condition stipulating that the distribution licensee can
B recover the electricity dues from the new owner or occupier was
necessary to safeguard the interests of the distributor. It was observed:
“13.A stipulation by the distributor that the dues in regard
to the electricity supplied to the premises should be cleared
before electricity supply is restored or a new connection is
C given to a premises, cannot be termed as unreasonable or
arbitrary. In the absence of such a stipulation, an
unscrupulous consumer may commit defaults with impunity,
and when the electricity supply is disconnected for non-
payment, may sell away the property and move on to
another property, thereby making it difficult, if not
D impossible for the distributor to recover the dues. Having
regard to the very large number of consumers of electricity and
the frequent moving or translocating of industrial, commercial and
residential establishments, provisions similar to Clauses 4.3(g) and
(h) of the Electricity Supply Code are necessary to safeguard the
E interests of the distributor.”
(emphasis supplied)
89. Electricity constitutes a public good. The Court’s interpretation
of the law must foster this position. In Hyderabad Vanaspati (supra)
this Court was adjudicating upon the validity of Clause 39 of the Conditions
F of Supply which defined various malpractices and provided for enquiries
by designated officials. This Court observed that it was the statutory
duty of the Board to supply, transmit, and distribute electricity throughout
the state in the most efficient and economical manner. It was further
observed that terms and conditions such as Clause 39 were necessary
G to prevent unauthorised use, pilferage or malpractices by the consumers.
Such terms were necessary to recoup the loss suffered by pilferages,
and to stop the continuation of similar malpractices.
90. Apart from protecting a public good, such conditions also have
a reasonable nexus with objects of the 2003 Act, such as a robust
development of the electricity industry, protecting the interests of
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K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 693
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

consumers as well as the financial interests of the distribution licensees. A
The need to protect the financial interests of distribution licensees has
been explicitly recognized in Section 61 of the 2003 Act which empowers
the Appropriate Commission to specify the terms and conditions for the
determination of tariff in accordance with commercial principles. The
relevant part of the Section 61 reads as follows:
B
“61. Tariff regulations.- The Appropriate Commission shall,
subject to the provisions of this Act, specify the terms and conditions
for the determination of tariff, and in doing do, shall be guided by
the following, namely:-
*** C
(b) the generation, transmission, distribution, and supply of
electricity are conducted on commercial principles;
***
(d) safeguarding of consumers’ interests and at the same D
time, recovery of the cost of electricity in a reasonable
manner;”
(emphasis supplied)
91. The Conditions of Supply and Electricity Supply Code which
require the payment of electricity dues of a previous owner as a condition E
for the grant of an electricity connection have a clear nexus to the scheme
of the parent legislations and the objectives sought to be achieved. It is
just and reasonable for distribution licensees to specify conditions of
supply requiring the subsequent owner or occupier of premises to pay
the arrears of electricity dues of the previous owner or occupier as a
F
pre-condition for the grant of an electricity connection to protect their
commercial interests, as well as the welfare of consumers of electricity.
V. Whether arrears of electricity can become a charge or
encumbrance over the premises
92. The next issue that arises for our consideration is whether G
arrears of electricity can become a charge or encumbrance over the
premises. An ancillary issue is whether such arrears can become a charge
on the property only through an express provision of law. Before we
embark upon our analysis, we clarify that it is unnecessary to deal with
the submission of the auction purchasers regarding registration under
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694 SUPREME COURT REPORTS [2023] 9 S.C.R.

A Section 17 of the Indian Registration Act 1908 for the conditions of
supply contained in a contract to constitute a charge. The decision of
this court in M.L. Abdul Jabbar Sahib v. M.V. Venkata Sastri &
Sons,44 was limited to the extent that it holds that a charge created by
an act of parties under Section 100 of the Transfer of Property Act 1882
does not attract the provisions of Section 59 of the Indian Registration
B
Act 1908.
93. The contention of the auction purchasers is that arrears of
electricity are not a charge on property as they do not run with the land.
They have relied on the decision in Ahmedabad Municipal
Corporation v. Haji Abdulgafur Haji Hussenbha45 to submit that
C enforcement of a charge against the property in the hands of a transferee
for value without notice of the charge does not arise, and electricity
dues are simply an unsecured debt. On the other hand, the Electric Utilities
submit that it is not even their case — in the absence of an express
provision of law — that there is any mortgage or charge over the property
D in the form that the licensee would be a secured creditor.
94. Section 100 of the Transfer of Property Act 1882 contemplates
two types of charges: charges created by act of parties and charges
arising by operation of law. It inter alia provides as follows:
“100. Charges:Where immoveable property of one person
E is by act of parties or operation of law made security for the
payment of money to another, and the transaction does not
amount to a mortgage, the latter person is said to have a
charge on the property; and all the provisions hereinbefore
contained 1[which apply to a simple mortgage shall, so far as may
F be, apply to such charge].
Nothing in this section applies to the charge of a trustee on the
trust property for expenses properly incurred in the execution of
his trust, [and, save as otherwise expressly provided by any
law for the time being in force, no charge shall be enforced
G against any property in the hands of a person to whom such
property has been transferred for consideration and without
notice of the charge.”
(emphasis supplied)
44 (1969) 1 SCC 573
H 45 (1971) 1 SCC 757
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 695
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

95. An encumbrance means a burden or charge upon property or A
a claim or lien upon an estate or on the land. Encumbrance must be a
charge on the property, which must run with the property. In terms of
the first paragraph of Section 100, when an immovable property of one
party is pledged as security for the payment of money to another, and
the transaction does not constitute a mortgage, the latter would acquire
B
a charge over the property. All provisions that apply to a simple mortgage
are applicable to a charge. A charge is neither a sale nor a mortgage
because it creates no interest in or over an immovable property but it is
only a security for the payment of money.46 In other words, a charge
only results in the creation of a right of payment out of the property
towards the satisfaction of the debt or obligation in question. C
96. The second paragraph of Section 100 provides an exception
to the general proposition that a charge runs with the land and can be
enforced even if the property has passed into the hands of a third party.
It provides that a charge cannot be enforced against a property in the
hands of a transferee without notice. The words “save as otherwise D
expressly provided by any law for the time being in force” indicate
that a charge can be enforced against a transferee without notice when
an express provision of law exists. Hence, a charge cannot be enforced
against a transferee if they have no notice of the same, unless the
requirement of such notice has been dispensed with by law.47
E
97. In AI Champdany Industries Ltd. v. Official Liquidator,48
this Court held that such a provision of law should not merely create a
charge, but it must expressly provide for the enforcement of a charge
against the property in the hands of a transferee for value without notice
of the charge.
F
98. In Haji Abadulgafur Haji Husseinbhai (supra), this Court
considered the doctrine of constructive notice as provided under Section
100. In that case, the Municipal Corporation had a charge on the property
of a person who was in arrears of property tax. An auction purchaser,
who became the owner of the property, resisted the attempt of the
Municipal Corporation to recover the arrears of pending taxes in exercise G
of its charge on the ground that they were not aware of the past municipal
46 Dattatreya Shanker Mote v. Anand Chintaman Datar & Ors, (1974) 2 SCC 799
47 Dattatreya Shanker Mote v. Anand Chintaman Datar, (1974) 2 SCC 799; State of
Karnataka v. Shreyas Papers Pvt. Ltd, 2006 (1) SCC 615
48 (2009) 4 SCC 486
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696 SUPREME COURT REPORTS [2023] 9 S.C.R.

A tax arrears. The Corporation argued that the transferee was imputed
with constructive knowledge of the charge created against the property
due to Section 141 of the Bombay Provincial Municipal Corporations
Act 1949. The Court held against the Municipal Corporation on the ground
that in the facts of the case, the plaintiff did not have constructive notice
of the arrears of municipality.
B
99. While explaining the purport of Section 100, this Court held
that the second half of Section 100 enacts a general prohibition and no
charge can be enforced against property in the hands of a transferee for
consideration without notice of the charge. In terms of Section 100, an
exception to this rule must be expressly provided by law. The Court held
C that whether a transferee has actual or constructive notice which satisfies
the requirement of notice in the proviso to Section 100, must be determined
in the facts and circumstances of each case. This Court observed:
“4. This section in unambiguous language lays down that no
charge is enforceable against any property in the hands of a
D transferee for consideration without notice of the charge except
where it is otherwise expressly provided by any law for the time
being in force. The saving provision of law must expressly provide
for enforcement of a charge against the property in the hands of
a transferee for value without notice of the charge and not merely
E create a charge. …… The real core of the saving provision of
law must be not mere enforceability of the charge against the
property charged but enforceability of the charge against the said
property in the hands of a transferee for consideration without
notice of the charge. Section 141 of the Bombay Municipal Act is
clearly not such a provision. The second contention fails and is
F repelled.”
100. Counsel for the Electric Utilities have not referred to any
provision in the plenary legislation of the 2003 Act by which electricity
dues would constitute a charge on the premises. The provisions of the
1910 Act, 1948 Act, and the 2003 Act do not provide that the arrears of
G electricity dues would constitute a charge on the property or that such a
charge shall be enforceable against a transferee without notice.It is
pertinent to note that this Court has reiterated that arrears of electricity
cannot become a charge or encumbrance over the premises, in the

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K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 697
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

absence of an express provision of law in the 1910 Act, 1948 Act or A
2003 Act.49
101. In Isha Marbles (supra), this Court observed that under the
provisions of 1910 Act read with 1948 Act, electricity arrears do not
create a charge over the property. It observed:
“56. From the above it is clear that the High Court has chosen to B
construe Section 24 of the Electricity Act correctly. There is no
charge over the property. Where that premises comes to
be owned or occupied by the auction-purchaser, when such
purchaser seeks supply of electric energy he cannot be
called upon to clear the past arrears as a condition C
precedent to supply. What matters is the contract entered
into by the erstwhile consumer with the Board. The Board
cannot seek the enforcement of contractual liability against
the third party. Of course, the bona fides of the sale may not be
relevant.”
D
102. Similarly, in Paschimanchal Vidyut Vitran Nigam (supra),
this Court held that in the absence of any contract to the contrary, the
amount payable towards supply of electricity does not constitute a charge
on the premises.
103. Consequently, in general law, a transferee of the premises E
cannot be made liable for the outstanding dues of the previous owner
since electricity arrears do not automatically become a charge over the
premises. Such an action is permissible only where the statutory
conditions of supply authorise the recovery of outstanding electricity
dues from a subsequent purchaser claiming fresh connection of electricity,
or if there is an express provision of law providing for creation of a F
statutory charge upon the transferee.
104. The next issue which falls for consideration is whether an
electricity charge can be introduced by way of statutory regulations or
rules enacted by a regulatory commission under its rule making power in
the 2003 Act. G
105. Counsel for the auction purchasers have relied on Deputy
Commercial Tax Officer, Park Town Division v. Sha Sukhraj
Peerajee,50 and Indian Council of Legal Aid and Advice v. Bar
49 1995 SCC (2) 648; AIR 2007 SC 2; (2010) 9 SCC 145
50 AIR 1968 SC 67 H
698 SUPREME COURT REPORTS [2023] 9 S.C.R.

A Council of India,51 to argue that a charge cannot be introduced by way
of regulations as the subject matter is not covered under Section 50 of
the 2003 Act. It was further contended that only a fiscal levy by way of
statutory exaction could be fastened on land. In the context of electricity,
it was urged that a state legislation can provide for a charge on property
only by providing for levy of a duty on consumption or sale of electricity.
B
Relying on India Cement Ltd & Ors v. State of Tamil Nadu52 and Al
Champdany Industries v. Official Liquidator53, it has been argued
that only such a fiscal exaction would get attached to the land.
106. The subject of taxes on the consumption or sale of electricity
within the State falls under Entry 53, List II of the Seventh Schedule of
C the Constitution. A number of States have enacted legislations providing
for the levy of electricity duty on consumption or supply of electricity. In
these instances, the legislature specifically provides that the duty payable
under the state legislation shall be a first charge on the amount recoverable
by the licensee for the electrical energy supplied. Further, the manner in
D which such charges are to be realised from the consumer is provided for
in the state legislation and relevant subordinate legislation. For example,
the Kerala Electricity Duty Act 1963 and Kerala Electricity Duty Rules
1963 provide that the dues from a consumer towards electricity duty
create a first charge on the amounts recoverable for the energy consumed.
E 107. However, Entry 53 of List II of the Seventh Schedule does
not have any bearing on the issues involved in this batch of cases. This
is because neither is any tax levied under Article 265 of the Constitution
nor is any levy imposed. It is not the case of the distribution licensees
that the State Commission under Section 50 of the 2003 Act has the
power to provide for fiscal exactions.
F
108. A subordinate rule or regulation, as in the case of the Electricity
Supply Code framed by a regulatory commission, can provide for a
statutory charge to be fastened on the premises within which consumption
of electricity was effected. In terms of Section 50 of the 2003 Act, a
State Commission is empowered to provide for recovery of electricity
G charges, intervals for billing of electricity charges, disconnection of supply
of electricity for non-payment thereof, restoration of supply of electricity
and other cognate matters. In terms of Section 181 of the 2003 Act, the
51 1995 (1) SCC 732
52 (1990) 1 SCC 12
53 (2009) 4 SCC 486
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K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 699
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

State Commission is empowered to make regulations and rules consistent A
with the Act which carry out the provisions of the Act. As held in the
preceding paragraphs, the rule making power contained under Section
181 read with Section 50 is wide enough to enable the regulatory
commission to provide for a statutory charge in the absence of a provision
in the plenary statute providing for creation of such a charge. The State
B
Commission is conferred with wide powers under the statutory framework
to provide for different mechanisms in the Electricity Supply Code for
recovery of electricity arrears of the previous owner. The recovery of
electricity arrears may take effect either by requiring a subsequent owner
of premises to clear payment of outstanding dues as a condition precedent
for an electricity connection, or by deeming that any amount due to the C
licensee shall be a first charge on the assets, or by any other reasonable
condition.
109. In exercise of such power, Regulation 10.5 of the
Maharashtra Electricity Supply Code 2005 provides that any charge for
electricity or any other sum which remains unpaid by an erstwhile owner D
constitutes a charge on the property and can be recovered from the
transferee subject to the permitted period specified therein. This provision
spelt out in the present judgement is a mere illustration of a subordinate
rule wherein unpaid electricity dues constitute a charge on property and
can be recovered from a subsequent transferee.
E
110. Reliance by the auction purchasers on the decisions in India
Cement Ltd (supra) or Indian Council of Legal Aid and Advice
(supra) render little assistance to their cause. The question in India
Cement Ltd (supra)was whether the State Legislature had competence
to enact a cess on royalty on mineral rights under Article 246 read with
Entry 49 of List II of the Seventh Schedule. In Indian Council of Legal F
Aid and Advice (supra),this Court dealt with Rule 9 in Chapter III of
Part VI of the Bar Council of India Rules, which barred persons who
have completed 45 years of age from enrolment as an advocate. Both
these decisions bear little relevance to the issue which has arisen in the
present appeals. G
111. The auction purchasers have also relied on the decision in
Sha Sukhraj Peerajee (supra). This Court held that Rule 21-A framed
by the State Government under Section 19 of the Madras General Sales
Tax Act, 1939 was ultra vires. In terms of Rule 21-A, a purchaser of a
business carried on by a ‘dealer’ could be made liable for arrears of H
700 SUPREME COURT REPORTS [2023] 9 S.C.R.

A sales tax due from the dealer in respect of transactions of sale which
took place before the transfer. This Court held that the rule making
power under Section 19 could not be used to enlarge the scope of recovery
and payment of tax from some person other than a ‘dealer’ under the
Act. Section 10, inserted by the Amendment Act of 1956, provided that
the outstanding amount on the date of default was made a charge on the
B
property of the person liable to pay tax. This Court did not consider the
import of Section 10 of the Act since the business was transferred before
the amending Act came into force. The ratio of the case is neither helpful
nor applicable in the instant case, since this Court was dealing with the
specific provisions of the Madras General Sales Tax Act 1939.
C 112. The provisions of the statute and statutory conditions of supply
need to be examined to determine whether the conditions of supply
provide for the creation of a charge in terms of Section 100 of the Transfer
of Property Act, 1882. Once it is established that a statutory charge is
created and required notice was given, the charge attaches to the property
D and the licensee is entitled to recover the unpaid electricity dues by
proceeding against the premises. Consequent to the charge created,
Article 62 of the Indian Limitation Act, 1963 would come into play. Article
62 of the Limitation Act relates to enforcing the payment of money
procured by mortgaged or otherwise charged upon the immoveable
property. The electricity utilities would get a period of twelve years to
E recover the dues charged on the immoveable property from the date
when the money payable became due.
113. In light of the above discussion, we are of the opinion that the
electricity utilities can create a charge by framing subordinate legislation
or statutory conditions of supply enabling recovery of electricity arrears
F from a subsequent transferee. Such a condition is rooted in the importance
of protecting electricity which is a public good. Public utilities invest
huge amounts of capital and infrastructure in providing electricity supply.
The failure or inability to recover outstanding electricity dues of the
premises would negatively impact the functioning of such public utilities
G and licensees. In the larger public interest, conditions are incorporated in
subordinate legislation whereby Electric Utilities can recoup electricity
arrears. Recoupment of electricity arrears is necessary to provide funding
and investment in laying down new infrastructure and maintaining the
existing infrastructure. In the absence of such a provision, Electric Utilities
would be left without any recourse and would be compelled to grant a
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K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 701
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

fresh electricity connection, even when huge arrears of electricity are A
outstanding. Besides impacting on the financial health of the Utilities,
this would impact the wider body of consumers.
VI. Implication of Section 56(2) on recovery of electricity
dues by Electric Utilities
114. The Electric Utilities have submitted that Section 56 of the B
2003 Act only deals with the right of the licensee to disconnect supply.
Explaining the scope of the relevant provision, it has been submitted that
Section 56 sets out different timelines, namely (a) when the disconnection
can be made i.e., when payment of charges is not made after giving
requisite notice; (b) how long the disconnection can be maintained i.e., C
so long as the outstanding dues remain; and (c) when it is to be restored
i.e., immediately when the outstanding dues are paid. Reliance has been
placed on Ajmer Vidyut Vitran Nigam Limited v. Rahamatullah
Khan,54 and M/s Prem Cortex v. Uttar Haryana Bijli Vitran Nigam
Limited55 to contend that the use of the expression “under this section”
in Section 56(2) means that the avenue of effecting disconnection to D
recover money cannot be resorted to after the limitation period. It is
further contended that Section 56 does not bar the recovery of pending
charges through other avenues of recovery in accordance with law. The
licensees urge that civil remedies and statutory power to recover
electricity can be utilised simultaneously. It was urged that Section 56 E
does not restrict the right of the licensee to insist on payment of the
arrears of charges incurred on the premises, from a subsequent applicant
for a fresh connection to the same premises.
115. On the implication of the two-year limitation period under
Section 56(2), it is submitted that (i) the limitation is with reference to F
the bar on disconnection by the licensee; (ii) no limitation is provided
under Section 56 after the electricity is discontinued for non-payment of
dues; (iii) a valid and subsisting money decree in favour of the Electricity
Board against the erstwhile owner of the premises would not be affected
by the limitation period of two years; (iv) no time limit has been provided
ÿþfor cessation of the right of the licensee to demand past dues for G
giving a new connection to the premises; and (v) the right of the licensee
not to give a connection till the outstanding dues are cleared is a continuing
right and cannot be said to be extinguished.
54 (2020) 4 SCC 650
55 Judgment dt. 5.10.2021 in CA 7235 of 2009 H
702 SUPREME COURT REPORTS [2023] 9 S.C.R.

A 116. On the other hand counsel representing the auction
purchasers have urged that (i) the period of limitation under Section
56(2), which begins with a non obstante clause, bars the recovery of
outstanding electricity dues from successful auction purchasers who apply
for a new connection for the supply of electricity from the licensee; (ii)
two conditions need to be fulfilled to get over the embargo on the recovery
B
of a sum due from any consumer, after a period of two years from the
date when such sum became first due, namely (a) such sum has been
shown continuously as recoverable as arrears of charges for electricity
supplied, and (b) the licensee shall not cut off the supply of the electricity;
(iii) the conditions of supply, being subordinate legislation, cannot override
C the duty cast upon the licensee, and dues cannot be recoverable either in
a manner or over and above what is provided for in the Section 56 (2);
and (iv) any alternative interpretation would render the bar under Section
56(2) meaningless, and the conditions of supply could be used to resurrect
time barred claims as held in State of Kerala v. VT Kallianikutty.56
D 117. The power to discontinue supply to a consumer is dealt with
in Section 56 of the 2003 Act. The provision is extracted below:
“Section 56: Disconnection of supply in default of payment
(1) Where any person neglects to pay any charge for electricity
or any sum other than a charge for electricity due from him to a
E licensee or the generating company in respect of supply,
transmission or distribution or wheeling of electricity to him, the
licensee or the generating company may, after giving not less than
fifteen clear days’ notice in writing, to such person and without
prejudice to his rights to recover such charge or other sum
F by suit, cut off the supply of electricity and for that purpose cut
or disconnect any electric supply line or other works being the
property of such licensee or the generating company through which
electricity may have been supplied, transmitted, distributed or
wheeled and may discontinue the supply until such charge or other
sum, together with any expenses incurred by him in cutting off
G and reconnecting the supply, are paid, but no longer:
Provided that the supply of electricity shall not be cut off if such
person deposits, under protest, -

H
56 (1999) 3 SCC 657
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 703
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

(a) an amount equal to the sum claimed from him, or A
(b) the electricity charges due from him for each month
calculated on the basis of average charge for electricity paid
by him during the preceding six months, whichever is less,
pending disposal of any dispute between him and the licensee.
(2) Notwithstanding anything contained in any other law for B
the time being in force, no sum due from any consumer, under
this section shall be recoverable after the period of two
years from the date when such sum became first due unless such
sum has been shown continuously as recoverable as arrear of
charges for electricity supplied and the licensee shall not cut off C
the supply of the electricity.”
(emphasis supplied)
118. Section 56 falls under Part VI which is titled “Distribution of
Electricity”. Section 56 provides for disconnection of electrical supply in
case there is a default in payment of electricity charges. D
119. The power to disconnect is a drastic step which can be
resorted to only when there is a neglect on the part of the consumer to
pay the electricity charges or dues owed to the licensee or a generating
company, as the case may be. Section 56(1) provides that where any
person neglects to pay any charge for electricity or any sum other than E
a charge for electricity due from him to a licensee or a generating
company, the licensee or generating company may after giving a written
notice of fifteen days, disconnect the supply of electricity, until such
charges, including the expenses incurred are paid. The power to
disconnect electricity is conditioned on the fulfilment of the conditions F
stipulated. The cutting off or disconnection is without prejudice to the
rights of the distribution licensee to recover such charge or other sums
by other permissible modes of recovery. The proviso to Section 56(1)
carves out an exception by providing that electricity supply will not be
cut off if the consumer, “under protest”, either deposits the amount claimed
or deposits the average charges paid during the preceding six months. G
120. The statutory right of the licensee or the generating company
to disconnect the supply of electricity is subject to the period of limitation
of two years provided by Section 56(2). Section 56(2) provides that
notwithstanding anything contained in any other law for the time being in
force, no sum due from any consumer “under this section” shall be H
704 SUPREME COURT REPORTS [2023] 9 S.C.R.

A recoverable after a period of two years from the date when such sum
became first due unless such sum has been shown continuously as
recoverable as arrears of charges for electricity supplied and the licensee
shall not cut off the supply of electricity. The limitation of two years is
limited to recovery of sums under Section 56. This is evident by the use
of the expression, “under this section”.
B
121. The first issue pertains to the simultaneous exercise of
statutory and civil remedies by the licensing authority to recover electricity
arrears. The liability to pay electricity charges is a statutory liability and
Section 56 provides the consequences when a consumer neglects to pay
any charge for electricity or any sum other than a charge for electricity
C due from him. Section 56(1) provides that the power of the licensee to
disconnect electrical supply when a consumer is in default of payment is
“without prejudice to his rights to recover such charge or other sum by
suit”. This means that the licensee can exercise both its statutory remedy
to disconnect as well as a civil remedy to institute a suit for recovery
D against the consumer since the licensee will not necessarily obtain the
amount due from the consumer by disconnecting the supply. In its decision
in Bihar SEB v. Iceberg Industries Ltd.,57 this Court has held that
the power to disconnect supply under Section 56 is a special power
given to the supplier in addition to the normal mode of recovery by
instituting a suit. The power to disconnect the supply of electricity as a
E consequence of the non-payment of dues and as a method to recover
dues is supplemental to the right of the licensee to institute a suit or other
proceedings for the recovery of dues on account of electrical charges.
122. Section 56(1) of the 2003 Act is pari materia to Section 24
of the 1910 Act. Section 24 of the 1910 Act empowered the Electricity
F Board to issue a demand and to discontinue supply to consumers who
neglected to pay charges, without prejudice to the right to recover such
charges or other sums by way of a suit. The import of Section 24 was
considered by this Court in Isha Marbles (supra), where it was observed
that the action of cutting off electricity supply after service of the notice
G as prescribed under Section 24 was in addition to the general remedy of
filing a suit for recovery.
123. In M/s Swastic Industries v. Maharashtra State
Electricity Board,58 this Court held that the right to discontinue supply
57 (2020) 20 SCC 745
H 58 (1997) 9 SCC 465
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 705
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

of energy under Section 24 was not taken away by Section 60A of the A
1948 Act, which provided an option to the Electricity Board to file a suit
within the period of limitation stipulated there. This Court observed that:
“5. It would, thus, be clear that the right to recover the
charges is one part of it and right to discontinue supply of
electrical energy to the consumer who neglects to pay B
charges is another part of it. The right to file a suit is a
matter of option given to the licensee, the Electricity Board.
Therefore, the mere fact that there is a right given to the
Board to file the suit and the limitation has been prescribed
to file the suit, it does not take away the right conferred on
the Board under Section 24 to make demand for payment of C
the charges and on neglecting to pay the same they have the
power to discontinue the supply or cut off the supply, as the case
may be, when the consumer neglects to pay the charges. The
intendment appears to be that the obligations are
mutual….” D
(emphasis supplied)
Hence, the power to initiate recovery proceedings by filing a suit
against the defaulting consumer is independent of the power to disconnect
electrical supply as a means of recovery.
E
124. The second issue pertains to the implication of the period of
two years provided in Section 56(2) on the civil remedies of Utilities to
recover electricity dues. Section 56(2), which begins with a non obstante
clause, provides a limitation of two years for recovery of dues by the
licensee through the means of disconnecting electrical supply. It puts a
restriction on the right of the licensee to recover any sum due from a F
consumer under Section 56 after a period of two years from the date
when such sum became first due. If this provision is invoked against a
consumer after two years, the action will be permissible when the sum,
which was first due, has been shown continuously as recoverable as
arrears of charges for electricity supplied. Under Section 56, the liability G
to pay arises on the consumption of electricity and the obligation to pay
arises when a bill is issued by the licensee for the first time. Accordingly,
the period of limitation of two years starts only after issuance of the bill.
125. Before we deal with the implication of Section 56(2) on the
civil remedies available to a licensee, it is important to clarify that when
H
706 SUPREME COURT REPORTS [2023] 9 S.C.R.

A the liability incurred by a consumer is prior to the period when the 2003
Act came into force, then the bar of limitation under Section 56(2) is not
applicable. In Kusumam Hotels Pvt Ltd v. Kerala State Electricity
Board,59 this Court has held that Section 56(2) applies after the 2003
Act came into force and the bar of limitation under Section 56(2) would
not apply to a liability incurred by the consumer prior to the enforcement
B
of the Act. In terms of Section 6 of the General Clauses Act 1897, the
liability incurred under the previous enactment would continue and the
claim of the licensee to recover electricity would be governed by the
regulatory framework which was in existence prior to the enforcement
of the 2003 Act.
C 126. In its report dated 19 December 2002, the Standing
Committee of Energy opined that the restriction for recovery of arrears
under Section 56 was considered necessary to protect the consumer
from arbitrary billings.60 In other words, the enactment of Section 56(2)
was to address the mischief of arbitrary billings. Hence, Section 56(2)
D was incorporated to ensure that a licensee does not abuse its special
power of disconnection of electrical supply. Section 56(2) ensures that a
licensee does not have the liberty to arbitrarily impose a bill after a long
period and then recover such a huge amount through the drastic step of
disconnection of electrical supply.
E 127. In Rahamatullah Khan (supra), a two judge Bench of this
Court dealt with the applicability of the period of limitation provided by
Section 56(2) on an additional or supplementary demand raised by the
licensee. A consumer was billed under a particular tariff but after an
audit, it was discovered that a different tariff code should have been
applied. An additional bill was subsequently raised in 2014 for the period
F from July 2009 to September 2011. Section 56(2) was interpreted not to
preclude the licensee from raising a supplementary demand after the
expiry of the period of limitation under Section 56(2) in the case of a
mistake or a bona fide error. However, it did not empower the licensee
to take recourse to the coercive measure of disconnection of electricity
G supply for recovery of the additional demand. This Court held that the
bar of limitation of two years does not preclude the licensee from resorting
to other modes of recovery of electricity arrears. The court observed:

(2008) 12 SCC 213
59

Standing Committee of Energy- Thirteenth Lok Sabha, The Electricity Bill 2001-
60

H Thirsty First Report, Ministry of Power (2002)
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 707
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

“7.4 Sub-section (1) of Section 56 confers a statutory right to the A
licensee company to disconnect the supply of electricity, if the
consumer neglects to pay the electricity dues. This statutory right
is subject to the period of limitation of two years provided by sub-
section (2) of Section 56 of the Act
7.5The period of limitation of two years would commence B
from the date on which the electricity charges became “first
due” under sub-section (2) of Section 56. This provision
restricts the right of the licensee company to disconnect electricity
supply due to non-payment of dues by the consumer, unless such
sum has been shown continuously to be recoverable as arrears of
electricity supplied, in the bills raised for the past period. If the C
licensee company were to be allowed to disconnect electricity
supply after the expiry of the limitation period of two years after
the sum became “first due”, it would defeat the object of Section
56(2).
8. Section 56(2) however, does not preclude the licensee company D
from raising a supplementary demand after the expiry of the
limitation period of two years. It only restricts the right of the
licensee to disconnect electricity supply due to non-payment
of dues after the period of limitation of two years has
expired, nor does it restrict other modes of recovery which E
may be initiated by the licensee company for recovery of a
supplementary demand.
9. Applying the aforesaid ratio to the facts of the present case,
the licensee company raised an additional demand on 18-3-2014
for the period July 2009 to September 2011. The licensee company F
discovered the mistake of billing under the wrong Tariff Code on
18-3-2014. The limitation period of two years under Section 56(2)
had by then already expired.
9.1. Section 56(2) did not preclude the licensee company
from raising an additional or supplementary demand after G
the expiry of the limitation period under Section 56(2) in
the case of a mistake or bona fide error. It did not, however,
empower the licensee company to take recourse to the
coercive measure of disconnection of electricity supply, for
recovery of the additional demand.”
H
(emphasis supplied)
708 SUPREME COURT REPORTS [2023] 9 S.C.R.

A 128. The exposition of law by this Court in Rahamatullah Khan
(supra) was considered by a coordinate bench in Prem Cortex (supra).
A consumer was served with a short assessment notice and the Court
had to consider whether short billing and the subsequent raising of an
additional demand would tantamount to a deficiency of service. This
Court observed that the bar contemplated in Section 56 operates on two
B
distinct rights of the licensee, namely, the right to recover and the right to
disconnect. This Court observed that under the law of limitation, the
remedy and not the right is extinguished. The bar with reference to the
remedy of disconnection was held to be an exception to the law of
limitation. This Court further considered the impact of Section 56(1) on
C Section 56(2) and observed:
“15. Therefore, the bar actually operates on two distinct
rights of the licensee, namely, (i) the right to recover; and (ii) the
right to disconnect. The bar with reference to the
enforcement of the right to disconnect, is actually an exception to
D the law of limitation. Under the law of limitation, what is
extinguished is the remedy and not the right. To be precise, what
is extinguished by the law of limitation, is the remedy through a
court of law and not a remedy available, if any, de hors through a
court of law. However, section 56(2) bars not merely the normal
remedy of recovery but also bars the remedy of disconnection.
E This is why we think that the second part of Section 56(2) is an
exception to the law of limitation.
….
23. Coming to the second aspect, namely, the impact of Sub-
F section (1) on Sub-section (2) of Section 56, it is seen that the
bottom line of Subsection (1) is the negligence of any person to
pay any charge for electricity. Sub-section (1) starts with the words
“where any person neglects to pay any charge for electricity or
any sum other than a charge for electricity due from him”.

G 24. Sub-section (2) uses the words “no sum due from any
consumer under this Section”. Therefore, the bar under Sub-
section (2) is relatable to the sum due under Section 56. This
naturally takes us to Sub-section (1) which deals specifically
with the negligence on the part of a person to pay any charge
for electricity or any sum other than a charge
H
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 709
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

for electricity. What is covered by section 56, under sub- A
section (1), is the negligence on the part of a person to pay
for electricity and not anything else nor any negligence on
the part of the licensee.”
(emphasis supplied)
129. The period of limitation under Section 56(2) is relatable to B
the sum due under Section 56. The sum due under Section 56 relates to
the sum due on account of the negligence of a person to pay for electricity.
Section 56(2) provides that such sum due would not be recoverable
after the period of two years from when such sum became first due.
The means of recovery provided under Section 56 relate to the remedy C
of disconnection of electric supply. The right to recover still subsists.
130. We may also briefly deal with the objection of the auction
purchasers that the conditions of supply cannot be used to resurrect
time barred debts. Counsel placed reliance on VT Kallianikutty (supra),
where it was held that a time barred debt cannot be recovered by taking D
recourse to the provisions of the Kerala Revenue Recovery Act.This
decision is not helpful to the auction purchasers in the present batch of
cases. In that case, a three-judge Bench of this Court while dealing with
agricultural loans extended by the Kerala Finance Corporation, held that
since the Kerala Revenue Recovery Act does not create a new right, a
person could not claim the recovery of amounts which are not legally E
recoverable. In reaching its decision, this Court, however, reasoned that
the statute of limitation bars the remedy by way of a suit beyond a
certain time period, without touching the right to recover the loan. The
right remains untouched and it can be exercised in any other suitable
manner provided. F
131. We therefore, reject the submission of the auction purchasers
that the recovery of outstanding electricity arrears either by instituting a
civil suit against the erstwhile consumer or from a subsequent transferee
in exercise of statutory power under the relevant conditions of supply is
barred on the ground of limitation under Section 56(2) of the 2003 Act. G
Accordingly, while the bar of limitation under Section 56(2) restricts the
remedy of disconnection under Section 56, the licensee is entitled to
recover electricity arrears through civil remedies or in exercise of its
statutory power under the conditions of supply.

H
710 SUPREME COURT REPORTS [2023] 9 S.C.R.

A VII. Implication of the sale of premises on “as is where is”
basis, with or without reference to electricity arrears of the
premises
132. The Electric Utilities have urged that (i) the auction purchasers
were put to notice of the requirement of the clearance of dues; (ii) the
B public auction-sales of premises were held on an “as is where is” basis;
(iii) this would include a condition of acknowledging all liabilities in respect
of the premises, with or without a specific reference of payment of
electricity dues; and (iv) in a sale arising out of commercial transactions,
the auction purchaser is required to undertake due diligence of outstanding
dues which are premises specific. On the other hand, the auction
C purchasers submitted that (i) a condition such as “as is where is” is a
feature of physical property and does not extend to claims which are not
charges or other encumbrances running with land; (ii) the argument finds
support in the decisions in Punjab Urban Planning and Development
Authority v. Raghu Nath Gupta61 and Delhi Development Authority
D v. Kenneth Builders and Developers Pvt Limited62; (iii) electricity
dues cannot be ascertained merely by looking at a property; and (iv)
there was no obligation on the applicants to ascertain the electricity dues
payable, more so in view of the judgement in the Isha Marbles (supra).
133. In the present batch of cases, the premises were sold in
E auction sales generally held on an “as is where is” basis. A sale on “as is
where is basis” postulates that the purchaser would be acquiring the
asset with all its existing rights, obligations and liabilities. When a property
is sold on an “as is where is” basis, encumbrances on the property stand
transferred to the purchaser upon the sale.

F 134. In U.T. Chandigarh Administration v. Amarjeet Singh63,
a two-judge Bench of this Court explained the characteristics of a public
auction in the context of the maintainability of a consumer complaint.
This Court held that where existing sites are put up for sale or lease by
public auction and the sale is confirmed in favour of the highest bidder,
the resultant contract relates to sale or lease of immovable property, and
G not a provision of service or sale of goods. This Court delved into the
nature of public auctions and opined on the implications of an auction
conducted on an “as is where is basis”, where an auction purchaser is
61 (2012) 8 SCC 197
62 (2016) 13 SCC 561
63 (2009) 4 SCC 660
H
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 711
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

expected to exercise due diligence with regard to the condition of a site. A
The Court observed:
“19. …. In a public auction of sites, the position is completely
different. A person interested can inspect the sites offered and
choose the site which he wants to acquire and participate in the
auction only in regard to such site. Before bidding in the auction, B
he knows or is in a position to ascertain, the condition and
situation of the site. He knows about the existence or lack
of amenities. The auction is on `as is where is basis’. With
such knowledge, he participates in the auction and offers a
particular bid. There is no compulsion that he should offer
a particular price. When the sites auctioned are existing sites, C
without any assurance/representation relating to amenities, there
is no question of deficiency of service or denial of service. Where
the bidder has a choice and option in regard to the site and price
and when there is no assurance of any facility or amenity, the
question of the owner of the site becoming a service provider, D
does not arise…
20.Where there is a public auction without assuring any
specific or particular amenities, and the prospective
purchaser/lessee participates in the auction after having
an opportunity of examining the site, the bid in the auction E
is made keeping in view the existing situation, position and
condition of the site. If all amenities are available, he would
offer a higher amount. If there are no amenities, or if the site
suffers from any disadvantages, he would offer a lesser amount,
or may not participate in the auction. Once with open eyes, a
person participates in an auction, he cannot thereafter be heard to F
say that he would not pay the balance of the price/premium or the
stipulated interest on the delayed payment, or the ground rent, on
the ground that the site suffers from certain disadvantages or on
the ground that amenities are not provided….”
(emphasis supplied) G
135. In Raghu Nath Gupta (supra),64 this Court held that a
successful auction purchaser of commercial plots sold with a superimposed
condition of “as is where is” basis is estopped from later contending that
64 (2012) 8 SCC 197 H
712 SUPREME COURT REPORTS [2023] 9 S.C.R.

A he is not bound by the terms and conditions of the auction notice or that
the seller had not provided basic amenities. The Court relied on the
terms and conditions, specifically Clause 25, stipulated in the auction
notice published by Punjab Urban Planning and Development Authority
in reaching its conclusion and held that the auction notice would have
considerable bearing in resolving the dispute. Clause 25 of the auction
B
notice provided that the site was offered on “as is where is” basis and
the Authority would not be responsible for levelling the site or removing
structures, if any, thereon. The phrase “as is where is” was explained by
this Court in the following terms:
“14. We notice that the respondents had accepted the
C commercial plots with the open eyes, subject to the above
mentioned conditions. Evidently, the commercial plots were
allotted on “as is where is” basis. The allottees would have
ascertained the facilities available at the time of auction
and after having accepted the commercial plots on “as is
D where is” basis, they cannot be heard to contend that PUDA
had not provided the basic amenities like parking, lights,
roads, water, sewerage etc. If the allottees were not interested
in taking the commercial plots on “as is where is” basis, they
should not have accepted the allotment and after having accepted
the allotment on “as is where is” basis, they are estopped from
E contending that the basic amenities like parking, lights, roads, water,
sewerage etc. were not provided by PUDA when the plots were
allotted….”
(emphasis supplied)

F 136. In Kenneth Builders and Developers (supra), in the
circumstances arising in that particular case, this Court refused to accept
the seller’s reliance on the “as is where is” condition and held that refusal
of the Delhi Pollution Control Committee,65 to grant permission to the
auction purchaser, frustrated the Development Agreement which was
entered into between the seller, Delhi Development Authority,66 and the
G builder. DDA had held an auction on an “as is where is” basis for involving
the private sector for the development of a project land. The bid was
accepted and a Development Agreement was entered between DDA
and the builder. However, when the builder attempted to carry out
65 “DPCC”
H 66 “DDA”
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 713
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

construction activity, it was prohibited by DPCC leading to an impasse A
in the development activity. The terms and conditions of auction
specifically mentioned that there was a presumption that the intending
purchaser had inspected the site and had familiarised himself with
prevalent conditions in all respects including the status of infrastructural
facilities available before giving its bid. Under Clause 6 of the
B
Development Agreement, it was the responsibility of the developer to
get various approvals and clearances from governmental departments.
Clause 11 of the Development Agreement further stipulated that the
builder was deemed to have inspected the site and its surroundings and
checked the information available. This Court held that the auction sale
on an “as is where is” basis and the specific clauses in the Development C
Agreement “related only to physical issues pertaining to the project land
and ancillary or peripheral legal issues pertaining to the actual construction
activity”. It was observed:
“34. When the DDA informed Kenneth Builders that the
project land was available on an “as is where is basis” and D
that it was the responsibility of the developer to obtain all
clearances, the conditions related only to physical issues
pertaining to the project land and ancillary or peripheral
legal issues pertaining to the actual construction activity,
such as compliance with the building bye-laws,
environmental clearances etc. The terms and conditions of E
“as is where is” or environmental clearances emphasized by
learned counsel for the DDA certainly did not extend to
commencement of construction activity prohibited by law except
after obtaining permission of the Ridge Management Board and
this Court. On the contrary, it was the obligation of the DDA to F
ensure that the initial path for commencement of construction
was clear, the rest being the responsibility of the developer. The
failure of the DDA to provide a clear passage due to an intervening
circumstance beyond its contemplation went to the foundation of
implementation of the contract with Kenneth Builders and that is
what frustrated its implementation. G

35. Reliance by the learned counsel for DDA on the “as is where
is” concept as well as Clause 6 and 11 of the Development
Agreement in this context is misplaced. As mentioned
above, this primarily pertains to physical issues at site….”
H
(emphasis supplied)
714 SUPREME COURT REPORTS [2023] 9 S.C.R.

A 137. Reliance placed by the auction purchasers on Raghu Nath
Gupta (supra) and Kenneth Builders and Developers (supra)to
contend that “as is where is” is a feature of physical property, limited to
encumbrances or charges running with land, is misconceived. In both
the cases relied upon by the auction purchasers, the judgments were
rendered on the peculiar facts at hand. In Raghu Nath Gupta (supra)
B
this Court was dealing with the availability of basic facilities like parking,
lights, roads, water and sewerage, but the application of the doctrine of
“as is where is” was not limited to only physical features of the property.
Further, in Kenneth Builders and Developers (supra) based on the
facts, this Court opined that a sale on “as is where is” could not be
C interpreted to mean that the auction purchaser would be responsible to
take permission for the initial commencement of construction itself, which
was the obligation of the DDA. The observation of this Court that “this
primarily pertains to physical issues at site” was limited to specific clauses
in the Development Agreement.
D 138. Thus, the implication of the expression “as is where is” or
“as is what is basis” or “as is where is, whatever there is and without
recourse basis” is not limited to the physical condition of the property,
but extends to the condition of the title of the property and the extent and
state of whatever claims, rights and dues affect the property, unless
stated otherwise in the contract. The implication of the expression is
E that every intending bidder isput on notice that the seller does not undertake
any responsibility to procure permission in respect of the property offered
for sale or any liability for the payment of dues, like water/service charges,
electricity dues for power connection and taxes of the local authorities,
among others.
F 139. The view which we take finds support in the judgments of
this Court in Paramount Polymers (supra)and Srigdhaa Beverages
(supra). In Paramount Polymers (supra), the premises of the erstwhile
owner were sold under the State Financial Corporations Act 1951 on an
“as is where is” basis. This Court held that an auction purchaser cannot
G be considered an ignorant party and a reasonable enquiry would have
put it on notice of the subsistence of such a liability. It was observed:
“9. …. Before submitting its bid to the Financial Corporation the
first respondent would certainly have inspected the premises and
could have come to know that power connection to the premises
H had been snapped and this information should have put it on
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 715
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

reasonable enquiry about the reasons for the power disconnection A
leading to the information that the previous owner of the
undertaking or consumer was in default. Moreover, the appellant
had clearly written to the Financial Corporation even before the
sale was advertised by it, informing it that a sum of Rs.64,23,695/
- was due towards electricity charges to the appellant and when
B
selling the undertaking, that amount had to be provided for or kept
in mind. Therefore, any reasonable enquiry by the first respondent
as a prudent buyer would have put it on notice of the subsistence
of such a liability. The sale was also on ‘as is where is’ basis…..”
140. In Srigdhaa Beverages (supra), this Court was considering
an auction sale under the Securitisation and Reconstruction of Financial C
Assets and Enforcement of Security Interest Act 2002.67 The Court
analysed Clauses 24 and 26 of the auction notice, which stipulated an
“as is where is” sale with respect to all statutory dues and absolved the
authorised officer of all liabilities for any charge, encumbrances and
dues, including electricity dues. It concluded that the auction purchaser D
was “clearly put to notice” since there was a specific mention of the
quantification of dues of various accounts including electricity dues. On
the liability of the past owners to bear electricity dues when the sale is
on “as is where is” and existence of electricity dues is specifically
mentioned, this Court categorically held that the auction purchasers were
bound to inspect the premises and provide for the dues in all respects. E
This Court observed:
“16.2. Where, as in cases of the E-auction notice in question, the
existence of electricity dues, whether quantified or not, has been
specifically mentioned as a liability of the purchaser and the sale
is on “AS IS WHERE IS, WHATEVER THERE IS AND F
WITHOUT RECOURSE BASIS”, there can be no doubt that
the liability to pay electricity dues exists on the respondent
(purchaser).”
141. To conclude, all prospective auction purchasers are put on
notice of the liability to pay the pending dues when an appropriate “as is G
where is” clause is incorporated in the auction sale agreement. It is for
the intending auction purchaser to satisfy themselves in all respects about
circumstances such as title, encumbrances and pending statutory dues
in respect of the property they propose to purchase. In a public auction
67 “SARFAESI Act” H
716 SUPREME COURT REPORTS [2023] 9 S.C.R.

A sale, auction purchasers have the opportunity to inspect the premises
and ascertain the facilities available, including whether electricity is
supplied to the premises. Information about the disconnection of power
is easily discoverable with due diligence, which puts a prudent auction
purchaser on a reasonable enquiry about the reasons for the disconnection.
When electricity supply to a premises has been disconnected, it would
B
be implausible for the purchaser to assert that they were oblivious of the
existence of outstanding electricity dues.
142. In terms of the legal doctrine of caveat emptor, it becomes
the duty of the buyer to exercise due diligence. A seller is not under an
obligation to disclose patent defects of which a buyer has actual or
C constructive notice in terms of Section 3 of the Transfer of Property act,
1882. However, in terms of Section 55(1)(a), in the absence of a contract
to the contrary, the seller is under an obligation to disclose material defects
in the property or in the seller’s title thereto of which he is aware and
which a buyer could not with ordinary care discover for himself.
D 143. While examining the effect of an “as is where is” clause, the
facts and circumstances of each case individually, along with the
terminology of the clauses governing the auction sales must be taken
into consideration, to arrive at an equitable decision.
G. Application: Facts of Individual Cases
E
144. Before we apply the above analysis to the facts of the
individual cases, it needs to be clarified that each case involves, in one
way or another, application of the conditions of supply or Electricity
Supply Code. At the outset, we note that the relevant date to determine
the applicability of the conditions of supply or Electricity Supply Code is
F the date on which the auction purchaser applied for a fresh connection
or reconnection for supply of electricity to the premises. The cause of
action arises when a fresh connection or reconnection is sought by the
auction purchaser. This has also been reiterated in the decision of this
Court in Paramount Polymers (supra). This Court observed:
G “11. ….. We are also not in a position to agree with the High
Court that the relevant date is the date of sale of the undertaking
by the Financial Corporation to the first respondent. The insertion
of clause 21-A was circulated by the communication dated 27-
11-2001 and it was subsequently followed by the formal notification
in terms of Section 49 of the Supply Act read with Section 79(j) of
H
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 717
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

that Act. The first respondent having applied for a fresh A
connection only on 1-1-2002, the application would be
governed by the Terms and Conditions including the term
inserted on 27-11-2001, as subsequently formally notified.
In the writ petition filed on 27-2-2002 in that behalf, the Court
could not have come to the conclusion that the application made
B
by the first respondent was not governed by the amended Terms
and Conditions of Supply including clause 21-A thereof…..On
our interpretation of clause 21-A of the Terms and Conditions of
Supply as inserted with particular reference to sub-clauses (b)
and (c) thereof, we are of the view that the said sub-clauses
clearly applied to the first respondent when it made an application C
on 1-1-2002 seeking a fresh connection for the premises.”
(emphasis supplied)
Considering the facts of the nineteen cases, we decide the appeals
in the following manner:
D
I.Kerala
145. The KSEB in exercise of powers conferred under Section
49 and Section 79(j) of the 1948 Act framed regulations relating to
Conditions of Supply of Electrical Energy. The regulations were published
in the Gazette on 15 December 1989 and came into force with effect E
from 1 January 1990. Clause 15 deals with the agreement for a service
connection. The relevant clause, with which we are concerned, is
extracted below:
“15. Agreement for Service Connection
15(c): When there is transfer of ownership or right of occupancy F
of the premises the registered consumer shall intimate the transfer
of right of occupancy of the premises within 7 days to the Assistant
Engineer/Assistant Executive Engineer concerned. On such
intimation having been received the service shall be disconnected.
If the transferee desires to enjoy service connection, he shall pay
G
off the dues to the Board and apply for transfer of ownership of
service connection within 15 days and execute fresh agreement
and furnish additional security. New consumer number shall be
allotted in such cases cancelling the previous number.

H
718 SUPREME COURT REPORTS [2023] 9 S.C.R.

A 15(d): All dues to the Board from a consumer shall be the first
charge on the assets of the consumer. All dues including penalty
shall be realized as public revenue due on land.
15(e): Reconnection or new connection shall not be given into
any premises where there are arrears on any account due to the
B Board pending payment, unless the arrears including penalty, if,
any, are cleared in advance (if the new owner/occupier/ allottee
remits the amount due from the previous consumer, the Board
shall provide re-connection or new connection depending on
whether the service remains disconnected/dismantled, as the case
may be. The amount so remitted will be adjusted against the dues
C from the previous consumer if the Board gets the full dues from
the previous consumer through R.R. action or other legal
proceedings the amount remitted by the new owner/occupier to
whom connection has been effected shall be refunded. But the
amount already remitted by him/her shall not bear any interest)”
D 146. In terms of Clause 15(c), when there is a transfer of ownership
or right of occupancy of the premises, the registered consumer shall
intimate the transfer of the right of occupancy of the premises within
seven days to the officer concerned. On such intimation being received,
the service shall be disconnected. If the transferee desires a service
E connection, they shall pay off the dues and apply for transfer of the
ownership of the service connection. In terms of Clause 15(d), all dues
to the KSEB from a consumer shall be the first charge on the assets of
the consumer. In terms of Clause 15(e), a new connection or reconnection
shall not be given to any premises where there are arrears on any account
unless they are cleared in advance.
F
147. The validity of Clause 15(e) was upheld by a Full Bench
decision of the Kerala High Court in Suraj v. KSEB.68 The High Court
upheld the validity of the said regulation on the ground that it is unjust to
compel the Board to supply electricity to the very same premises without
the arrears of the previous owner or occupier being cleared. The High
G Court observed:
“8. Regulations make no distinction between an auction purchaser
and others in the matter of supply of electricity. Regulations 15(d)
and (e) have been incorporated with a purpose, or else by

H 68 2005 (3) KLT 856
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 719
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

successive transfer of the premises the Board’s right to recover A
the amount from the previous consumers as well as from the
assets could be effectively defeated at the same time the Board
is called upon to provide electricity to the same premises.
Regulation 15(e) has a reasonable nexus with the object
sought to be achieved, that is to save public property so as
B
to subserve the general interest of the community. Once
electricity is disconnected and the equipment dismantled,
it is unjust to compel the Board to give electricity
connection to the very same premises at the instance of a
third party which will not be in public interest especially
when electricity is considered as a public property. Further C
petitioner has also not challenged the validity of Regulations 15(d)
and 15(e) in this writ petition.”
(emphasis supplied)
148. Two cases — K.C. Ninan v. KSEB69 andKJ Dennis v.
KSEB,70 arise from the state of Kerala. In both these cases, the Kerala D
High Court upheld the validity of Clause 15(e) and directed that to avail
a fresh electricity connection for premises where arrears are due, the
auction purchasers would have to pay outstanding dues of the previous
consumer in compliance with the said condition.
Item 101.9: KJ Dennis v. Kerala State Electricity Board; E
Civil Appeal 2108 of 2004
149. The KSEB disconnected the electricity connection of Pearlite
Wire Products Ltd in 1992 on account of unpaid electricity charges.
Meanwhile, the Kerala High Court ordered the winding up of the
company under the Sick Industrial Companies (Special Provision) Act F
1985,71 as the original owner failed to pay its dues to Syndicate Bank
and Kerala Financial Corporation. On 20 April 1997, KSEB addressed a
letter to the Official Liquidator, demanding payment of Rs 66 lakhs, being
arrears of electricity charges and penal interest. On 27 January 1999,
the offer of the appellant to purchase the properties of Pearlite Wire G
Products Ltd was accepted and was confirmed by the Kerala High
Court on 4 March 1999. The terms of sale, as settled by the High Court,
provided that:
69 CA 2109-2110/2004
70 CA 2108/2004
71 “SICA” H
720 SUPREME COURT REPORTS [2023] 9 S.C.R.

A “7. General terms and conditions:-
***
(c) The assets are sold on “As Where is and Whatever there Is”
condition.
B (d) The assets are sold on the assumption that the tendered have
inspected the assets, know what they are tendering for, whether
they have inspected or not and the principle of ‘Caveat Emptor’
will apply.”
150. The appellant sought permission of the KSEB for wiring for
C an electricity connection in the property by a letter dated 4 June 1999.
Wiring permission was rejected by KSEB due to the outstanding dues of
the erstwhile owner, and it was stated that a new connection would be
provided if the appellant was ready to remit the amount due from the
previous consumer.

D 151. In the interregnum, KSEB filed a claim petition before the
Company Court in a company petition72 claiming a sum of Rs 86,54,711
from Pearlite Wire Products Ltd, which was in liquidation. The claim
petition was admitted for Rs 63 lakhs. The appellant filed a company
application73 seeking a direction to the KSEB to not insist on payment of
arrears of electricity charges by the auction purchaser, which were due
E from the company in liquidation. On 18 September 2000, the Single Judge
rejected the application filed by the appellant, holding that KSEB can
insist on the arrears being cleared before the connection is given.
Aggrieved by the order, the appellant challenged the validity of Clause
15(e) before the High Court on the ground that it is violative of Article
F 14 of the Constitution. On 18 July 2001, the Division Bench rejected the
challenge. Finally, on 14 September 2001, the impugned order was passed
in which the Review Petition against the order of the Division Bench
was dismissed.
152. By its judgement dated 18 July 2001, the Kerala High Court
upheld the validity of Clause 15(e) and held that the KSEB is not bound
G
to give a reconnection or a new connection to the premises where there
are arrears on any account due to the Board, unless the arrears including
penalty, are cleared in advance. It observed that Section 79(j) read with

72 Company Petition 15 of 1994
H
73 Company Application 349 of 1999 in Company Petition 15 of 1994
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 721
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

Section 49 of the 1948 Act gave considerable latitude to the Board to A
make regulations governing the supply of electricity, and the Board could
effect supply of electricity upon such terms and conditions as it thinks
fit, that is, in accordance with Clause 15(e). The Court further noted
that even when all formalities have been satisfied by a prospective
consumer in accordance with Clause VI of the Schedule to the 1910
B
Act, the Board retains the power to lay down appropriate regulations to
safeguard electricity, which is public property and take actions in the
best interest of the Board. The Court placed reliance on the judgement
of the Kerala High Court in A Ramachandran v. KSEB74 in reaching
its decision.
153. In the impugned judgement dated 14 September 2001 in the C
Review Petition, the Court further clarified that Clause 15(e) can also
be invoked in winding up proceedings as the manner in which the new
person became owner, allottee or occupier of the property is immaterial.
Finally, the High Court clarified that the mere fact that the Electricity
Board was trying to recover the due amount as a secured creditor before D
the winding up proceedings as against the previous owner, would be of
no consequence on the applicability of Clause 15(e).
154. Notice was issued by this Court on 25 January 2002. By an
order dated 28 February 2007, this Court directed the parties to negotiate
a settlement and arrive at a formula to recover the amount agreeable to E
both parties. This Court observed:
“Balancing the equities as they arise in the present case would be
a delicate task, and whichever way we decide this case the losing
party may feel that justice has been denied to it. At the same time,
we cannot lose sight of the fact that the appellants have made F
huge investments as claimed by them, and only the interest
component on such investment may create a huge liability as
against the appellant. On the other hand, if the industry starts
functioning, perhaps the Electricity Board will also stand to gain.
We have no doubt that instead of litigating, if the parties could
have settled the dispute, both would have benefited to a great G
extent.”
However, no settlement could be reached.

74 2000 SCC OnLine Ker 75 H
722 SUPREME COURT REPORTS [2023] 9 S.C.R.

A 155. We are of the view that the Kerala High Court was correct
in upholding the validity of Clause 15(e). Clause 15 of the Conditions of
Supply of the Electrical Energy, which is statutory in character,
unequivocally provides that the Board is not obligated to give reconnection
or a new connection in the premises where there are any arrears of
electricity charges from a previous consumer, unless the arrears including
B
penalty are cleared by the new owner/ occupier/ allottee. Furthermore,
in the present case the terms of auction sale provided that the assets
were sold on “as is where is and whatever there is’’ basis. In the light of
the clear facts, the respondent would be well within its right to demand
the electricity arrears due, from the appellant-purchaser. Since KSEB’s
C claim petition was admitted for Rs 63,94,298 the amount remitted, if any,
by the appellant to whom connection has been effected would be adjusted
in accordance with Clause 15(e).
156. We hold that the decision of the High Court does not call for
interference. The appeal is therefore dismissed.
D Item 101: K.C. Ninan v. Kerala State Electricity Board;
Civil Appeal No. 2109-2110 of 2004
157. The appellant purchased the property of United Industries
Cochin Ltd in a court auction on 31 October 1989. The electricity
connection of the premises was earlier disconnected in 1980 and the
E electric supply line was dismantled in 1985 on account of non-payment
of electricity charges. On 1 December 1989, the appellant allegedly
applied to KSEB for an electric connection to the purchased premises.
Subsequently, on 1 January 1990, Clause 15 of the Conditions of Supply
of electrical energy was effectuated. On 12 June 1990, the KSEB sent
F a communication to the appellant, refusing to grant an electric connection
unless the appellant paid the arrears of electricity of the premises. As a
consequence, the appellant filed a writ petition seeking a permanent
electrical connection and challenging Clause 15(e) of the Conditions of
Supply.

G 158. The High Court in the judgement dated 13 February 2003
relied on KJ Dennis (supra)and A Ramachandran (supra), and rejected
the prayer of the auction purchaser to get an electricity connection without
paying the dues of the previous owner to the KSEB. The appellant filed
a review petition against the judgement dated 13 February 2003. It was
the appellant’s contention that the decisions in Ramachandran (supra)and
H
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 723
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

KJ Dennis (supra) are inapplicable to the facts of the case. The A
appellant submitted that the “judgement under review was delivered
without taking note of the fact that condition 15(e) was incorporated in
the Conditions of Supply of Electrical Energy only with effect from
1.1.1990 while the petitioner purchased the property on 31.10.1989 in a
Court auction and the application for electric connection was made on
B
1.12.1989.” The review petition filed by the appellant was dismissed on
the ground that the High Court’s decision in Ramachandran (supra)
took into consideration the ratio in Isha Marbles (supra)and thereafter
upheld the action taken by the respondent-Board.
159. This Court issued notice on 7 January 2004, and granted
leave on 2 April 2004. Recovery proceedings were stayed on 5 May C
2006.
160. The appellant has submitted in the course of the written
submissions that the impugned regulation would apply prospectively as
subordinate legislation made by a delegate cannot have retrospective
effect unless rule making power in the concerned statute expressly or D
by necessary implication confers power in this behalf. 75 It was further
stated that the appellant had applied for electricity connection on 1
December 1989, before the Conditions of Supply came into force. It has
been urged that in the absence of any existing statutory regulations, the
appellant cannot be called upon to clear the past arrears incurred by the E
erstwhile consumer as a condition precedent to electricity supply.
161. The relevant date to determine the applicability of the
Conditions of Supply is the date on which the auction purchaser applies
for a fresh connection of electricity for the premises, and not the date of
purchase of the undertaking. The issue before this Court is whether F
there was any statutory provision in operation governing the issue of
recovery of the defaulted amount as on the date when the appellant
applied for a new electric connection.
162. The respondent in their counter affidavit has raised a dispute
on the factum of the date of application for a fresh connection of G
electricity. The respondent submits that the court sale was held on 31
October 1989, which was confirmed on 22 January 1990 and the sale
certificate was signed on 6 April 1990. It is argued that in these
circumstances, it is unlikely that the appellant would have received
75 Reliance placed on State of Madhya Pradesh v. Tikamdas, (1975) 2 SCC 100 H
724 SUPREME COURT REPORTS [2023] 9 S.C.R.

A possession of the premises or would have applied for an electric
connection on 1 December 1989, as alleged by the appellant.
163. However, neither party has submitted any material on record
to prove the date of the application for the grant of a power connection.
In view of the material factual dispute and insufficient evidence on record,
B we remand the matter to the High Court to determine whether Condition
15 of Conditions of Supply of Electrical Energy would apply to the
appellant’s case, bearing in mind the principles which have been laid
down in this judgment.
II. Maharashtra
C 164. In the state of Maharashtra, the terms and conditions under
which the MSEB supplied electrical energy were provided in the MSEB
Conditions of Supply. The MSEB Conditions of Supply were made
effective from 1 January 1976. The MSEB Conditions of Supply laid
down a detailed procedure in respect of the application for supply of
D electrical energy, payment of bills, procedure to be adopted in case of
prejudicial use of electrical energy and the terms on which the supply of
electrical energy is released to a consumer.Condition 23 of MSEB
Conditions of Supply provides for assignment and transfer of agreement.
165. In light of the New Industrial Development Policy 1993, aimed
E at reviving sick industries,the MSEB issued Circular 518 dated 18 June
1993, titled “Power Supply to closed and Sick Industrial Unit”. The aim
of Circular 518 was to encourage prospective entrepreneurs to take
over sick industrial units under Section 29 of the State Financial
Corporation Act 1957. The Circular presented prospective owners who
purchased sick/ closed industrial units in auction with two options —
F either pay arrears including minimum charges to get electricity supply
reconnected, or apply for a fresh connection after completing necessary
formalities, without being liable for outstanding arrears of the previous
owner. The circular further provided that Condition 23(b) of the MSEB
Conditions of Supply would not apply to prospective consumers with
G effect from 1 April 1993.
166. The circular was withdrawn by the Circular 607 dated 19
December 1998, whereby it was mandated that reconnection or fresh
connection would be released only after the arrears of the Electricity
Board are cleared. The circular purported to emanate from Condition
23(b) of the Conditions of Supply, as framed by the MSEB. The circular
H
was made operative with immediate and prospective effect.
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 725
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

167. In light of the impugned judgments of the Bombay High Court, A
which are in appeal before us, MSEB by its Circular 684 dated 25
September 2003 allowed auction purchasers of closed/ sick industrial
units to exercise either of the options as prescribed by Circular 518
dated 18 June 1993. However, an undertaking was required by the
incoming consumers to unconditionally agree to pay the arrears of previous
B
owners in case the Supreme Court decided in favour of MSEB.
168. After the enactment of the 2003 Act, the Maharashtra
Electricity Supply Code, 2005 was framed under Section 50 of the 2003
Act. The regulations came into effect from 20 January 2005, and apply
prospectively. Regulation 10.5 of the Maharashtra Electricity Supply Code
provides that dues owed to the distribution licensee are charge on the C
property and as a statutory effect, the liability for the payment of
electricity dues is passed on to the new owner/ occupier of the premises,
albeit to a certain time restriction. Regulation 10.5 provides as follows:
“10.5: Any charge for electricity or any sum other than a charge
for electricity due to the Distribution Licensee which remains D
unpaid by a deceased consumer or the erstwhile owner / occupier
of any premises, as a case may be, shall be a charge on the
premises transmitted to the legal representatives / successors-in-
law or transferred to the new owner / occupier of the premises,
as the case may be, and the same shall be recoverable by the E
Distribution Licensee as due from such legal representatives or
successors-in-law or new owner / occupier of the premises, as
the case may be.
Provided that, except in the case of transfer of connection to a
legal heir, the liabilities transferred under this Regulation 10.5 shall F
be restricted to a maximum period of six months of the unpaid
charges for electricity supplied to such premises”
169. Presently, the Maharashtra Electricity Regulatory Commission
(Electricity Supply Code and other Standards of Performance of
Distribution Licensees including Power Quality) Regulations 202176 have G
been enacted repealing the Maharashtra Electricity Supply Code 2005.
Clause 12.5 of the 2021 Regulations reiterates that any unpaid charges
for electricity shall be a charge on the premises.

76 “2021 Regulations” H
726 SUPREME COURT REPORTS [2023] 9 S.C.R.

A 170. From the state of Maharashtra, there are six judgments of
the Bombay High Court which are in appeal before us.
169. Mr. Ajit Bhasme, learned senior counsel appearing on behalf
of the appellant-Board urged the following common legal submissions:
a. MSEB Conditions of Supply, as then prevalent under the 1910
B Act and the 1948 Act, are statutory in character, as held by
this Court in Hyderabad Vanaspati (supra). The Conditions
of Supply are in addition to and not in lieu of other modes of
recovery;
b. MSEB Conditions of Supply are a part of the standard
C agreement entered into between the consumer and the
Electricity Company. Clause 14 of the standard agreement
between the Electricity Board and the consumer incorporates
the Conditions of Supply as a part of the agreement;
c. The reliance placed by the Bombay High Court on the
D judgement in Isha Marbles (supra) cannot be sustained since
the case of Isha Marbles (supra)is distinguishable on facts;
d. The General Auction Conditions of Sale of SICOM in Clause
2 stipulate that the sale is on “as is where is and what is”
basis. Auction purchasers were put on notice of their liability
E for the past electricity arrears due to the inclusion of the
standard auction proclamation (Clause 6) while inviting bids;
e. Regulation 10.5 of Maharashtra Electricity Supply Code 2005
explicitly states that any unpaid electricity dues shall be a
charge on the premises transferred; and
F
f. All six cases pertain to the period prior to 2005 i.e., before
the enactment of the Maharashtra Electricity Supply Code
2005. The 1976 MSEB Conditions of Supply would continue
to operate till the enactment of the Maharashtra Electricity
Supply Code in 2005.
G 171. In Maharashtra, the right of the Electric Utilities to demand
outstanding dues is traceable to provisions across different time periods:
a. Up to enactment of the 2003 Act on 10 June 2003: The
governing laws are the 1910 Act and the 1948 Act. The MSEB
Conditions of Supply were framed under Section 49 of the
H
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 727
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

1948 Act. The MSEB Conditions of Supply which were made A
effective from 1 January 1976 would apply;
b. From 10 June 2003 to 20 January 2005: The provisions
of the 2003 Act were brought into force with effect from 10
June 2003. The 1910 Act and 1948 stood repealed after the
enactment of the 2003 Act. The Maharashtra Electricity B
Supply Code 2005 came into force from 20 January 2005. In
the interregnum, the MSEB Conditions of Supply would
continue to apply, so far as they are not inconsistent with the
provisions of the 2003 Act. This is due to the following
reasons:
C
i. By virtue of Section 185(2)(a) of the 2003 Act,
notwithstanding such repeal anything done or any action
taken or purported to have been done or taken including
any rule, notification, inspection, order or notice made
etc. under the repealed law shall, in so far as it is not
inconsistent with the provisions of this Act, be deemed D
to have been done or taken under the corresponding
provisions of this Act. Section 185(2)(5) further provides
that Section 6 of the General Clauses Act 1897 would
be applicable in relation to matters prescribed in Section
185(2) with regard to the effect of repeals; E
ii. Regulation 19(1) of the Electricity Supply Code 2005,
provides that any terms and conditions of supply which
are inconsistent with the provisions of the Maharashtra
Electricity Supply Code 2005 shall be deemed to be
invalid from the date on which these regulations come F
into force; and
c. From 20 January 2005till the enactment of the 2021
Regulations: The Maharashtra Electricity Supply Code 2005,
which came into force from 20 January 2005, would apply.
To determine whether the Maharashtra Electricity Supply G
Code 2005 would govern the facts of a particular case, the
relevant date would be when the auction purchaser had
requested the Electricity Board to supply electricity.
172. In the six cases originating from Maharashtra, the respondents
were successful auction purchasers who purchased the premises in court
H
728 SUPREME COURT REPORTS [2023] 9 S.C.R.

A auction sales. The appellant-Board relied on Condition 23 of the MSEB
Conditions of Supply to impose a precondition of clearing electricity
arrears of the erstwhile consumer, before a new electricity connection
could be provided. The High Court in all the cases directed the appellant-
Board to provide reconnection or fresh connection to the respondents,
without insisting on payment of arrears.
B
173. These impugned judgments raise a common question on the
applicability and the scope of Condition 23. This Court would first deal
with the overall argument on the applicability of Condition 23 of the
MSEB Conditions of Supply, and its interpretation, before delving into
the specific factual matrix of the cases.
C
174. In Maharashtra State Electricity Board v. Super &
Stainless Hi Alloys Ltd.,77 the Bombay High Court relied on the decision
of this Court in Isha Marbles (supra) to quash the impugned circular
dated 19 December 1998 for lack of jurisdiction as it was held to be
beyond the powers of the Electricity Board under Section 24 of the 1910
D Act. The High Court concluded that the contract of supply was only
between the Electricity Board and the previous consumer, and since the
subsequent purchaser was a third party, it cannot be made liable for the
past liabilities of the erstwhile consumer.
175. In Supdt. Engg. Maharashtra State Electricity Board v.
E M/s Umang Enterprises,78 the High Court placed reliance on the
decisions of this Court in Isha Marbles (supra)and Gujarat Inns
(supra) to reject the argument of the appellant-Board. The Bombay High
Court disposed of the writ petition with a direction to the appellant to
grant an electricity connection to the premises, without insisting on
F clearance of past dues of the previous consumer. It is important to note
that the High Court in its reasoning did not refer to the MSEB Conditions
of Supply and the import of Condition 23 on the liability of the auction
purchasers.
176. In Maharashtra State Electricity Board v. Ecto
G Spinners,79 and Maharashtra State Electricity Distribution Co. Ltd.
v. M/s Zia Iron Store,80 the High Court considered the purport of
Condition 23 of the MSEB Conditions of Supply. It concluded that
77 Civil Appeal 5312-5313 of 2005
78 Civil Appeal No. 5314 of 2005
79 Civil Appeal No. 6587 of 2005

H 80 SLP(Civil) No. 6068 of 2006
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 729
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

Condition 23 was not applicable to involuntary transfers, such as by A
operation of law or in pursuance of the decree of a competent court.
Accordingly, it held that the respondent-purchasers could not be made
liable for the dues of the erstwhile owners as a prerequisite to obtain a
new electricity connection.
177. The Bombay High Court in the impugned judgement dated B
20 July 2005 in Ecto Spinners was aided by the following reasons to
arrive at this conclusion:
a. Condition 23(b) does not refer to an involuntary transfer though
it does refer to a voluntary transfer or a transfer on account
of the death of the owner. The word “successor” in the C
expression “any person claiming to be heir, legal
representative, transferee, assignee or successor of the
defaulting consumer” would have to be understood by applying
the principle of ejusdem generis. Accordingly, the words
preceding the word “successor” clearly disclose a reference
to a person who acquires the right to the property on account D
of either voluntary transfer or on account of death of the
owner; and
b. Transfer of a property purchased in a public auction is an
involuntary transfer by the owner. Hence, Condition 23 does
not impose any liability on a transferee occupying the premises E
of the erstwhile consumer on account of having acquired right
by public auction or any other mode of non-voluntary transfer.
178. The Electricity Board can demand arrears due by an erstwhile
defaulting consumer in regard to supply of electricity to premises from
the purchaser of a property seeking reconnection or fresh connection of F
electricity when either of two conditions are met:
a. An express provision exists in law providing that electricity
arrears constitute a charge over the property. For the statutory
charge to be enforced against the property in the hands of a
person to whom such property has been transferred for G
consideration, the transferee must have notice, either actual
or constructive, of the charge; and
b. The statutory regulations or terms and conditions of supply
which are statutory in character, authorise the supplier of
electricity to make such a demand. H
730 SUPREME COURT REPORTS [2023] 9 S.C.R.

A 179. In general law, electricity arrears do not constitute a charge
over the property. Under the provisions of the 1910 Act read with the1948
Act, electricity arrears do not create a charge over the property. In the
cases before us governed by the 1910 Act read with 1948 Act, no charge
was created on the property in favour of the Electricity Board for the
payment of electricity dues. The arrears of electricity dues were not
B
levied against the premises, but were levied against the erstwhile
consumer.
180. We are of the opinion that the Bombay High Court’s
interpretation of the ratio in Isha Marbles (supra) in Super & Stainless
Hi Alloys Ltd and M/s Umang Enterprises is incorrect due to the
C reason that the High Court failed to enquire into whether any statutory
regulation or statutory terms and conditions of supply existed which
pertained to the liability of a third person who acquires the property of
the erstwhile consumer.
181. In the cases pertaining to Maharashtra, MSEB or its
D successor the Maharashtra State Electricity Distribution Co. Ltd. placed
specific reliance on Condition 23 of the statutory Conditions of Supply.
Condition 23 is the only clause in the statutory provisions which pertains
to the liability of a person who acquires the property of the erstwhile
consumer in circumstances specified thereunder. Circular 607 dated 19
E December 1998 is stated to emanate from Condition 23(b) of the
Conditions of Supply. The Bihar State Electricity Board in Isha Marbles
(supra) did not have a specific condition having a similar effect as
Condition 23.
182. In Hyderabad Vanaspathi (supra) this Court held that the
F Conditions of Supply in the State of Andhra Pradesh, notified in exercise
of the powers conferred by Section 49 of the 1948 Act, are statutory in
character. The Court noted that no regulation has been made under
Section 79(j) of the 1948 Act.
183. In the present case, the appellant-Board in exercise of its
G powers under Section 49 of the Electricity Supply Act formulated the
MSEB Conditions of Supply. Accordingly, the MSEB Conditions of Supply
are statutory in nature.
184. When a provision having a statutory force and effect is relied
upon by the Electric Utilities to impose the liability of clearing the
outstanding dues of the erstwhile consumer on a third party, it is for the
H
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 731
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

courts to determine whether the said statutory provision is applicable to A
the facts of the case before it. In Special Officer, Commerce, North
Eastern Electricity Supply Company of Orissa v. Raghunath Paper
Mills Private Limited,81 this Court observed that Regulation 13(10)(b)
of the Orissa Electricity Regulatory Commission Distribution (Conditions
of Supply), Code, 2004 was inapplicable to the facts of the case as the
B
auction purchaser had requested for a fresh connection, whereas in terms
of the concerned regulation, previous dues had to be cleared only with
respect to a reconnection or a transfer of service connection from the
name of the erstwhile consumer.
185. The submission of the appellant on the applicability of
Condition 23 rests on the meaning and scope of Condition 23 in relation C
to the liability of a person who becomes the new owner or occupier of
the premises of the erstwhile consumer, to which electricity was being
supplied. Condition 23 is extracted below:
“Clause 23: Assignment or Transfer of Agreement
D
a) The consumer shall not without previous consent in writing of
the Board, assign, transfer or part with the benefit of his Agreement
with the Board nor shall the consumer in any manner part with or
create any partial or separate interest thereunder.
b) A consumer who commits breach of condition 23(a) above E
and neglects to pay to the Board any charges for energy or to
deposit with the Board amount of security deposit or compensation
and the supply of such consumer is disconnected under Section
24 of the Indian Electricity Act, 1910 or under condition no. 31(a)
of these conditions dies, or transfers, assigns or otherwise
dispenses of the undertaking or the premises to which energy F
was being supplied to the consumer, any person claiming to be
heir, legal representative, transferee, assignee or successor
of the defaulting consumer with or without consideration in
any manner shall be deemed to be liable to pay the arrears of
electricity charges, security deposit or compensation due payable G
by the consumer and it shall be lawful for the Board to refuse to
supply or reconnect the supply or to give a new connection to
such personclaiming to be the heir, legal representative, transferee,
assignee or successor of the defaulting consumer of such premises,
81 (2012) 13 SCC 479 H
732 SUPREME COURT REPORTS [2023] 9 S.C.R.

A unless the amount of such charges due and / or the compensation
demanded from the defaulting consumer, is as the case may be
duly paid to or deposited with the Board.”
(emphasis supplied)
186. In terms of Condition 23(a), a consumer is not entitled to
B transfer the benefit under their agreement with the Electricity Board
without the previous consent of the Board. In terms of Condition 23(b),
if the consumer commits breach of Condition 23(a) and neglects to pay
the Board any charges for energy and consequently, the electricity supply
of such consumer is disconnected, then the third party upon whom such
C a transfer was effected is liable to pay arrears of electricity which the
defaulting consumer has not paid. Liability of a third party to pay dues of
the erstwhile consumer is attached when the conditions specified in
Condition 23(a) and Condition 23(b) are satisfied.
187. The rule of “ejusdem generis” is a principle of construction.
D The rule is that when general words follow particular and specific words
of the same nature, the general words must be confined to the things of
the same kind as those specified. It applies when the following ingredients
are present: (i) the statute contains an enumeration of specific words;
(ii) the subjects of enumeration constitute a class or category; (iii) that
category is not exhausted by the enumeration; (iv) a general term follows
E the enumeration; and (v) there is no indication of a different legislative
intent.82
188. For the application of the ejusdem generis rule, it is essential
that enumerated things before the general words must constitute a distinct
category or a genus or a family which admits of a number of members.83
F In Adoni Cotton Mills Ltd. v. Andhra Pradesh State Electricity
Board,84 this Court had to interpret Section 49(3) of the 1948 Act, which
empowered the Electricity Board to fix different tariffs for the supply of
electricity to any person having regard to the geographical position of
any area, the nature of supply and purpose for which the supply is required
G and any other relevant factors. This Court refused to limit the generality
82 Amar Chandra v. Collector of Excise, Tripura, (1972) 2 SCC 442; Grasim Industries
Ltd. v. Collector of Customs, (2002) 4 SCC 297
83 Lokmat Newspapers (P) Ltd. v. Shankarprasad, (1999) 6 SCC 275; Jaiprakash

Associates Ltd. v. Tehri Hydro Development Cor
pn. (India) Ltd., (2019) 17 SCC 786
84 (1976) 4 SCC 68
H
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 733
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

of “other relevant factors” since there was no genus of the enumerated A
factors. Geographical position of the area and the nature and purpose of
the supply were held not to be related to any common genus.
189. In the impugned judgment Ecto Spinners, the Bombay High
Court observed that the word “successor”, occurs in the collocation of
other words “heir”, “legal representative”, “transferee” and “assignee”, B
and its meaning must take colour from the preceding words in association
with which it is used. It held that the word “successor” has to be
understood to refer to an owner acquiring the right by way of voluntary
transfer or on account of the right of inheritance.
190. We are unable to accept the reasoning of the High Court. C
The dictionary meaning of some words and expressions, which have a
bearing on this case, has been set out in Black’s law Dictionary as follows:
“Heir: A person who, under the laws of intestacy, is entitled to
receive an intestate decedent’s property85
Legal representative: A legal heir; or an executor, administrator D
or other legal representative86
Transferee: One to whom a property interest is conveyed87
Assignee: One to whom property rights are transferred by
another”88
E
191. It is clear from the plain meaning of the words that the
expressions “heir”, “legal representative”, “transferee” and “assignee”
do not fall into one single distinct category. According to the reasoning in
the impugned judgment, Condition 23 itself consists of more than one
genus or category of transfer — acquiring the right to a property on
F
account of voluntary transfer, or on account of death of the owner. The
word “successor”, which was interpreted by the High Court in a
restricted manner, is itself of wide amplitude and will have to be given a
plain meaning. The expression “successor” has been defined in Black’s
Law Dictionary as “a person who succeeds to the office, rights,
responsibilities, or place of another; one who replaces or follows a G
predecessor.” 89 The category of a “universal successor” is further
85 Black’s Law Dictionary (WEST: Thomson Reuters 9 th edition), Pg 791
86 Black’s Law Dictionary (WEST: Thomson Reuters 9 th edition), Pg 1416
87 Black’s Law Dictionary (WEST: Thomson Reuters 9 th edition), Pg 136

88 Black’s Law Dictionary (WEST: Thomson Reuters 9 th edition), Pg 1636

89 Black’s Law Dictionary (WEST: Thomson Reuters 9 th edition), Pg 1569 H
734 SUPREME COURT REPORTS [2023] 9 S.C.R.

A understood to mean “someone who succeeds to all the rights and powers
of a former owner, as with an intestate estate or an estate in
bankruptcy”.90
192. The wide compass of the expression “any person claiming to
be heir, legal representative, transferee, assignee or successor of the
B defaulting consumer” can be understood with regard to the former
corresponding phrase “dies, or transfers, assigns or otherwise dispenses
of the undertaking or the premises”.
193. In the case at hand, the use of the expression “otherwise
dispenses of” in the phrase “a consumer…dies, or transfers, assigns or
C otherwise dispenses of the undertaking or premises’’, does not bring into
play the rule of ejusdem generis for the preceding words “dies”,
“transfers”, “assigns” do not belong to a single limited genus.
194. The word “transfer” itself is generally regarded to have a
wide connotation, comprehending within it both voluntary and involuntary
D transfers. In Mangalore Electric Supply Co. Ltd. v. The
Commissioner of Income Tax, West Bengal,91 a three-judge Bench
of this Court held that a compulsory acquisition of property can constitute
a “transfer” within the meaning of Section 12B(1) of the Indian Income
Tax Act 1962. It rejected the argument that the word “transfer” must be
construed ejusdem generis with the preceding words “sale”, “exchange”,
E “relinquishment”. On the wide amplitude of the word ‘transfer’, this
Court observed:
“8. We find it impossible to accept this submission. In the first
place if it was intended that voluntary transfers alone should fall
within the meaning of the section, it was unnecessary for the
F legislature to use the expression “transfer”, an expression
acknowledged in law as having a wide connotation and amplitude.
Earl Jowitt, in “The Dictionary of English Law” says:
“In the law of property, a transfer is where a right passes
from one person to another, either (1) by virtue of an act
G done by the transferor with that intention, as in the case of a
conveyance or assignment by way of sale or gift, etc; or (2)
by operation of law, as in the case of forfeiture,
bankruptcy, descent, or intestacy.”
90
Id
91
H (1978) 3 SCC 248
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 735
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

Roland Burrows on “Words and Phrases”, Volume V, contains a A
statement under the caption “Transfer on Sale” at p. 331 that
even a transfer of land under compulsory powers is a transfer
“on sale”. It is unnecessary for us to consider the question whether
a compulsory acquisition of property is a “sale” within the meaning
of Section 12-B(1) and indeed, it is needless for the present purpose
B
to go that far. We are concerned with the narrower question
whether a compulsory acquisition of property can amount to a
“transfer” within the meaning of Section 12-B(1) and upon that
question it is important to bear in mind that the word “transfer” is
comprehensive and is regarded generally as comprehending within
its scope transfers both of the voluntary and involuntary kinds. C
Without more, therefore, there is no reason for limiting the operation
of the word “transfer” to voluntary acts of transfer so as to exclude
compulsory acquisitions of property.”
(emphasis supplied)
195. The rule of ejusdem generis cannot be applied when there is D
no distinct category or a genus. In the absence of a genus, the words
‘transfer’ or ‘otherwise dispenses of’, which are wide in their meaning,
cannot be restricted to only mean voluntary transfers by the application
of the ejusdem generis principle.
196. The rule of ejusdem generis is not an inviolable rule of law. 92 E
Where the context and mischief of the statutory enactment do not require
a restricted meaning to be attached to words of general import, the court
has to give the words their plain and ordinary meaning.93 Condition 23 of
the MSEB Conditions of Supply is a mode of recovery of electricity
arrears of the erstwhile consumer, which could be recovered even from F
a successor. The MSEB, in our opinion, intended to cover all possible
cases of transfer of the undertaking or premises of the erstwhile consumer,
be it voluntary, on account of death of the consumer, or by operation of
law. Circular 518 dated 18 June 1993 and Circular 607 dated 19 December
1998 issued by the MSEB emanated from Condition 23 of the MSEB
Conditions of Supply. They contained directions vis-à-vis power supplied G
to those property owners who purchased sick and closed industrial units.
The context and the purpose of the statutory terms and conditions of

92 Valparaiso Kottarathil Kochuni v. States of Madras & Kerala, (1960) 3 SCR 887
93 BHEL v. Globe Hi-Fabs Ltd., (2015) 5 SCC 718 H
736 SUPREME COURT REPORTS [2023] 9 S.C.R.

A supply demand that a broader construction should be adopted, and there
is no room for the application of the rule of ejusdem generis.
197. On our interpretation of Condition 23 of the MSEB Conditions
of Supply with particular reference to subclause (b) thereof, we are of
the view that the said sub-clause is applicable to involuntary transfers,
B such as court auctions.
198. Applying the above considerations to the appeals our
conclusions are as follows:
Item 101.1: Maharashtra State Electricity Board v. Super
& Stainless Hi Alloys Ltd; Civil Appeal 5312-5313 of 2005
C
199. The first respondent purchased a sick industrial unit in auction
from the SICOM under Section 29 of the State Financial Corporations
Act. It filed a writ petition challenging the actions of the appellant-Board
in denying it a new electricity connection. A subsequent writ petition
was filed by SICOM challenging the vires of Circular 607 dated 19
D December 1998. By a common judgment dated 19 December 2002, the
Bombay High Court disposed of the writ petitions and quashed the
impugned Circular 607 on the ground that MSEB lacked jurisdiction as
the circular was beyond the powers of the Board under Section 24 of
the 1910 Act. The High Court relied on Isha Marbles (supra), to reach
E the conclusion that although Section 24 provides for payment of arrears
for reconnection after the supply is disconnected, it only refers to the
consumer who failed to pay the dues and does not concern itself with a
new owner or occupier of the premises.
200. The appellant preferred the present Special Leave Petition.
F This Court issued notice on 6 May 2003 and leave was granted on 25
August 2005. By an order dated 24 August 2006, the question whether
electricity dues constitute a charge on the property so far as the transferor
and the transferee of the unit are concerned was referred to a larger
bench.
201. In our considered view, the decision in Isha Marbles
G
(supra)and Section 24 of the Electricity Act 1910 are by themselves not
an answer on whether the appellant-Board had a power to issue Circular
607. In Srigdhaa Beverages (supra), this Court held that the electricity
dues, where they are statutory in character under the Electricity Act
and as per the terms and conditions of supply, cannot be waived in view
H of the provisions of the Act itself, more specifically Section 56 of the
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 737
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

2003 Act (pari materia with Section 24 of the 1910 Act), and cannot A
partake the character of purely contractual dues. The power of the
appellant-Board to impose a condition that the purchaser of an
undertaking will have the obligation to clear the arrears of electricity
dues of the prior consumer is sourced from Condition 23 of the MSEB
Conditions of Supply framed under Section 49 of the 1948 Act.
B
202. It was the submission of the respondents that the impugned
circular cannot affect the rights of the auction purchasers who purchased
sick/ closed industrial units under Section 29 of the State Financial
Corporation Act 1951 as the sale was “not voluntary”. As discussed
above, Condition 23 is of wide import, which covers sale of property
made in court auctions. Furthermore, Section 29(2) of the State Financial C
Corporation Act provides that a sale under Section 29 which resulted in
transfer of property shall vest in the successor all rights in the property
transferred as if the transfer has been made by the owner of the property.
Accordingly, a sale made by the corporation is deemed to be a sale
made by the owner of the property, attracting Condition 23 of the MSEB D
Conditions of Supply.
203. It is necessary to reproduce some of the relevant clauses of
the “General Auction Conditions of Sale” of properties put on sale by
SICOM. The clauses are extracted below:
“Clause 4: The purchaser may take inspection of the property to E
be sold. Even if the purchaser does not take inspection, he
shall be deemed to have inspected all the assets put up for
sale on “As is where is and what is basis” in regard to the
condition thereof, before making the offer for purchase of
the same. It is hereby expressly agreed and declared that F
notwithstanding the provisions of Section 55 of the Transfer of
Property Act or any other enactment for the time being in force in
that behalf, SICOM shall not be bound to disclose to the purchaser
any defect, whether material or otherwise in the property, whether
or not SICOM may be or may not be aware of such defect and
whether or not the purchaser could not with ordinary care and G
diligence discover such defects.
Clause 6: The purchaser shall make his own arrangement for
getting required power connection, water and other facilities and
payment of arrears of rates and taxes of the said property and
shall meet all the costs of whatever nature to be incurred in that H
738 SUPREME COURT REPORTS [2023] 9 S.C.R.

A behalf. SICOM shall not be liable to pay any arrears if charges
and costs/ expenses, if any, in respect of power, water or any
other facilities required. The purchaser shall make own
inquiries about arrears of dues for supply of power, water
and other facilities, if any, and the same shall be borne and
paid by the purchaser alone.”
B
(emphasis supplied)
204. The aforesaid terms and conditions of the auction as set out
by SICOM indicate that the property was being sold on “as is where is
and what is basis”. The auction purchaser was at all times on clear
C notice of the fact that the property was being sold on an “as is where is”
basis and that SICOM did not undertake any liability for the payment of
dues. This clause was further subject to another provision in Clause 6,
where the purchaser was liable to make their own inquiries about arrears
of dues for supply of power, water and other facilities and the auction
purchaser was made liable to pay such arrears. This makes it clear that
D apart from the MSEB Conditions of Supply, which have statutory effect,
the purchaser who purchased property in auctions conducted under
Section 29 of the State Financial Corporations Act also had knowledge
of his liability for the past arrears of electricity of the premises when he
bid in the auction. By virtue of the stipulations in the sale deed, as far as
E the first respondent is concerned, it was liable to discharge the electricity
dues payable to the Electricity Board by the erstwhile consumer.
205. In light of what we have stated above, we set aside the
judgement of the Division Bench and allow the appeal.
Item 101.10: Supdt. Engg. Maharashtra State Electricity
F Board v. M/s Umang Enterprises; Civil Appeal No. 5314 of 2005
206. The first respondent was a successful auction purchaser of
the property of M/s Creekay Yarn Industries Ltd, which was put to sale
in consequence of an arbitral award. The respondent-purchaser took
out a Judges Order94 in a civil suit before the Bombay High Court, seeking
G a clarification that it was not liable for past dues and liabilities of any
kind in respect of the property purchased through the auction sale. The
Bombay High Court by its order dated 29 January 2003 declared that
the respondent-purchaser was not liable to pay any arrears payable by
the erstwhile owner. The appellant alleges that this order was passed
H
94 Judges Order No. 10 of 2003 in Civil Suit no. 2978 of 1991
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 739
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

ex-parte. The order of the Bombay High Court in Judges Order dated A
29 January 2003 has not been placed on record before this Court.
207. The respondent-purchaser requested the appellant for a new
electricity connection, which was denied on 6 June 2003 on the ground
that the respondent was not eligible for a new connection unless the
dues of the erstwhile consumer were discharged in terms of Condition B
23 of the MSEB Conditions of Supply. The respondent filed a writ petition,
with an interim prayer seeking a direction to grant a new electric
connection. The main prayer in the writ petition sought a declaration
that the demand made by the Electricity Board to pay arrears was
unfounded in law. The Bombay High Court by its impugned judgment
dated 24 September 2004 disposed of the writ petition with a direction to C
the appellant to grant an electricity connection to the premises within
one month, without insisting on clearance of past dues of the previous
consumer. The High Court placed reliance on the decisions of this Court
in Isha Marbles (supra)and Gujarat Inns (supra).
208. The appellant preferred the present Special Leave petition. D
This Court issued notice on 6 January 2005.
209. As already stated before, this Court in both Isha Marbles
(supra)and Gujarat Inns (supra)did not hold the auction purchaser liable
to clear the electricity arrears incurred by the previous owners because
there was no specific statutory provision in that regard, or any clause E
dealing with the issue of electricity dues. In the present case, the MSEB
placed specific reliance on Condition 23 of MSEB Conditions of Supply
to hold the auction purchasers liable. The MSEB Conditions of Supply
were incorporated in the individual contracts entered between the
Electricity Board and the consumers. Clause 14 in the standard F
agreements entered between the MSEB and consumers provides that
the Conditions of Supply, as amended from time to time, shall be deemed
to be part of the agreement. The erstwhile consumers were aware of
the statutory MSEB Conditions of Supply. The relevant clause is extracted
below:
G
“Clause 14(a): Condition and Miscellaneous Charges for supply
of electrical energy of the Maharashtra State Electricity Board
for the time being in force and as amended by supplier from time
to time shall be deemed to be part of the Agreement and shall
govern the parties hereto in so far as applicable. A copy of the
H
740 SUPREME COURT REPORTS [2023] 9 S.C.R.

A current Conditions and Miscellaneous Charges for supply is set
out in the second schedule hereto.”
210. We are of the considered view that the impugned order cannot
be sustained and is accordingly set aside.
Item 101.11: Maharashtra State Electricity Board v. Ecto
B Spinners; Civil Appeal No. 6587 of 2005
211. In 1999, the unit of M/s Prabhavati Spinning Mill, a co-
operative spinning mill, was closed down. The electricity supplied to M/
s Prabhavati Spinning Mill had earlier been disconnected by the appellant
in default of payment of consumption charges. In 2004, the first respondent
C purchased M/s Prabhavati Spinning Mill, which was liquidated by the
authorities under the Maharashtra Co-operative Societies Act 1960. The
agreement of sale was executed in favour of the first respondent on 26
July 2004 and since then, the first respondent had the possession of the
property. The final deed of assignment was yet to be executed. The first
D respondent incurred an expenditure of Rs 4 crores to overhaul the plant
and machinery at the premises, and thereafter applied for a fresh
electricity connection as a High Tension Consumer for the premises.
Meanwhile, the plots were transferred by the Maharashtra Industrial
Development Corporation to the first respondent on 4 February 2005.
The appellant, however, relied on the MSEB Conditions of Supply and
E the agreement entered with the erstwhile consumer to decline granting
electricity connection until the arrears of the erstwhile consumer were
cleared. The respondent filed a writ petition before the Aurangabad Bench
of the Bombay High Court, seeking a direction to the appellant to supply
electricity to the respondent at its premises.
F 212. By the impugned judgement dated 20 July 2005, the Bombay
High Court allowed the writ petition. The High Court held that the
respondent could not be made liable for the dues of the erstwhile owner
as a prerequisite for obtaining a new electricity connection as there was
neither any statutory provision nor an agreement creating any charge
G over the property in relation to the electricity arrears.
213. This Court granted leave on 24 October 2005. As discussed
above, Condition 23 of MSEB Conditions of Supply is a specific provision
applicable to the case of the first respondent. In view of the above, we
allow this appeal, and set aside the judgment and order of the High
Court.
H
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 741
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

Item 101.12: Maharashtra State Electricity Distribution Co. A
Ltd. v. M/s Zia Iron Store; SLP(Civil) No. 6068 of 2006
214. The original consumer, M/s Sumit Re-Rolling Mills Pvt. Ltd,
Nagpur, defaulted in the payment of a loan taken from the Nagpur Nagrik
Sahakari Bank. The bank filed a dispute before the Co-operative court
at Nagpur. The Judge, Cooperative court at Nagpur by an order dated B
23 February 2005 granted permission to sell the hypothecated plant and
machinery and mortgaged land and building of M/s Sumit Re-Rolling
Mills Pvt. Ltd. In the execution of the award, the property belonging to
M/s Sumit Re-Rolling Mills Pvt. Ltd was purchased by the first
respondent.
C
215. The authorised officer of the bank handed over the physical
possession of the entire moveable plant and machinery and immovable
land and building, mortgaged with the bank, to the respondent on 21
March 2005 on “as is where is” and “as is what is” basis.
216. A deed of assignment and sale dated 17 February 2006 was D
entered between the Nagpur Nagarik Sahakair Bank Ltd. and the
respondent. Clause 2 of the indenture notes that the bank would not take
any liability for any dues like electricity dues and charges for fresh power
connection. The relevant clause is extracted below:
“The liabilities, if any and the liabilities which may arise in future E
in respect of the dues of Local authorities and dues of Revenue
Authority, MIDC Authority and Sales Tax etc. and also for transfer
of property in question, shall be for transfer of property in question
shall be payable by the purchaser. The property hereby assigned
in on “as is where is” and “as is what is” basis. The Bank does
not undertake any liability or responsibility to procure any F
permission/licence etc. in respect, of the property offered for sale
or for any dues like water/service charges of the MIDC, transfer
fees, electricity dues and charges for fresh power connection,
Local Authority, or Nazul/NIT dues, in respect of the said property
and the same shall be solely and exclusively borne and paid by the G
Purchaser.”
217. The first respondent applied for a fresh electricity connection
for the premises. The appellant-MSEDC refused the request of the first
respondent by a letter dated 9 September 2005 on the ground that the
arrears of electricity charges of the earlier owner were pending, and the
H
742 SUPREME COURT REPORTS [2023] 9 S.C.R.

A first respondent was liable to clear them in light of Condition 23 of MSEB
Conditions of Supply. The Bombay High Court by its impugned judgment
dated 12 December 2005 held that Condition 23 was inapplicable and
directed the appellant to grant a fresh connection to the first respondent,
if otherwise eligible. The High Court observed that Condition 23 intended
to apply to voluntary acts of the original consumer by which he transfers
B
the benefit of his agreement with the Board.
218. The appellant filed a Special Leave Petition challenging the
impugned judgement. The appellant has argued that the concept of
voluntariness is not a sine qua non for Condition 23 of the MSEB
Conditions of Supply. In the reply filed by the respondent, it has been
C urged that it is not a necessary party to the present petition since it had
sold the premises in dispute to Rajaram Steel Industries Pvt Ltd by a
deed of assignment dated 29 March 2006.
219. The High Court in the impugned judgment has based its
decision on the MSEB Conditions of Supply 1976. What is the effect of
D the respondent applying for a fresh electricity connection after the
enactment of the Maharashtra Electricity Supply Code on 20 January
2005 was not considered. The relevant date to determine the applicability
of the statutory provisions governing conditions of supply of electricity is
the date on which the auction purchaser applies for an electricity
E connection.
220. The application by the respondent in which it sought a fresh
electricity connection has not been placed on record. At the same time,
from the deed of assignment and sale placed on record, it emerges that
the sale of the premises and possession was given after 20 January
F 2005. The permission to sell was granted to the bank only on 23 February
2005. The physical possession of the premises was given to the respondent
only on 21 March 2005. A fresh connection of electricity supply could
not have been requested even before the sale was confirmed in favour
of the respondent. Accordingly, the relevant statutory provision governing
this case is the Maharashtra Electricity Supply Code 2005.
G
221. In terms of Regulation 10.5, any charge for electricity or any
sum other than a charge for electricity due to the distribution licensee
which remains unpaid by a deceased consumer or the erstwhile occupier/
owner of any premises shall be a charge on the premises transmitted to
the legal representatives / successors-in-law or transferred to the new
H
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 743
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

owner / occupier of the premises, as the case may be, and the same A
shall be recoverable by the Distribution Licensee as due from such legal
representatives or successors-in-law or new owner / occupier of the
premises. However, the proviso lays down that except in the case of a
transfer of a connection to a legal heir, the liabilities which are transferred
under Regulation 10.5 are restricted to a maximum period of six months
B
of the unpaid charges for electricity supplied to the premises. Accordingly,
the dues owed by M/s Sumit Re-Rolling Mills Pvt. Ltd, Nagpur are charged
on the property purchased by the first respondent in a public auction.
222. The sale was conducted on “as is where is” basis and the
respondent accordingly had adequate notice of the charge. Hence, the
distribution licensee is entitled to recover the unpaid dues from the first C
respondent subject to the permitted period specified in the proviso to
Regulation 10.5.
223. In view of the aforesaid legal position, which has emerged,
we are of the view that the impugned order of the High Court cannot be
sustained. The appeal is allowed. D

Item 101.13: Maharashtra State Electricity Board v. M/s
Jai Tirath Financiers Pvt. Ltd.; SLP(Civil) No. 10732 of 2006
224. ÿþIn 1999, liquidation proceedings were initiated against M/
s Hariganga Alloys & Steel Ltd. By a sale notice dated 2 May 2001, E
offers were invited from interested bidders for purchase of properties of
M/s Hariganga Alloys & Steel Ltd on “as is where is” and “as is what
is” basis. The first respondent successfully purchased the assets in the
auction sale and took possession of the purchased property in 2002.
225. On 17 June 2005, the respondent applied to the appellant for F
a new electricity connection to the premises purchased in the auction.
By a letter dated 22 June 2005, the appellant rejected the application on
the ground that arrears of electricity charges of Rs 83 lakhs of the erstwhile
owner were pending and a permanent electricity connection could not
be released till full dues were paid. The appellant permitted release for a
temporary connection. The respondent filed Company Application No. G
106 of 2005 in Company Petition No.6 of 1999 in the matter of liquidation
of M/s Hariganga Alloys & Steel Ltd, seeking the release of a new
electricity connection without clearance of arrears.
226. The application of the respondent was allowed by the
impugned order dated 10 February 2006, passed by a Single Judge at the H
744 SUPREME COURT REPORTS [2023] 9 S.C.R.

A Nagpur Bench of the Bombay High Court. The High Court held that the
appellant could not deny electricity connection to the respondent on the
ground of recovery of arrears of the erstwhile owner of the plot. The
High Court noted that the appellant was one of the secured creditors
and directed it to make its claim before the Official Liquidator in
accordance with law.
B
227. The appellant preferred the present Special Leave petition.
On 17 July 2006, this Court issued notice and stayed the operation of the
impugned order.
228. During the pendency of the appeal, the respondent had sold
C the property to M/s Ankush Shikshan Santha and the new owner had
submitted a proposal dated 9 August 2007 to the appellant that it was
prepared to settle the dues of M/s Hariganga Alloys & Steel Ltd in
twelve instalments. By an order dated 22 October 2007, this Court
directed the appellant to restore the electricity connection after receipt
of the first two instalments by the respondent in view of the undertaking
D given by the respondent that it shall deposit the entire arrears of Rs 83
lakhs in terms of the proposal dated 9 August 2007. The Court has been
informed that pursuant to the order, M/s Ankush Shikshan Santha had
paid the arrears to the tune of Rs 83 lakhs and the appellant has granted
a fresh electricity connection.
E 229. In the meantime, an Interlocutory Application95 was filed by
the respondent for disposing the petition on the ground that it had become
infructuous. The appellant in the reply affidavit has contested the IA on
the ground that even though the principal amount of Rs 83 lakhs has
been paid towards arrears, interest charges to the tune of approximately
F Rs 2 crore on the principal amount are still to be recovered.
230. Since the respondent applied for electricity connection on 17
June 2005, the Maharashtra Electricity Supply Code 2005, which came
into force from 20 January 2005, is applicable in the instant case.
Accordingly, a charge was created on the electricity arrears in terms of
G Regulation 10.5. At the same time, the Court cannot be oblivious to the
commercial exigencies in view of which the settlement proposal was
complied with. The appellant has recovered an amount of Rs 83 lakhs.
In the facts and circumstances of the case it would be iniquitous to
direct the payment of interest at this stage. We therefore direct a closure

H
95 IA No. 2 of 2007
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 745
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

of the dispute in the above terms in the exercise of the jurisdiction under A
article 142 of the Constitution.
231. In the circumstances, it is not possible to entertain the appeal
at this stage. The appeal is accordingly dismissed. Pending applications,
if any, stand disposed of.
Item 101.14: Maharashtra State Electricity Distribution Co. B
Ltd. v. M/s Garib Nawaj Scrap Merchant; Civil Appeal No. 10732
of 2006
232. In 2002, the electricity supply of M/s R & J Alloys Pvt. Ltd
was permanently disconnected by the appellant. On 3 October 2005, the
first respondent successfully purchased the properties of M/s R & J C
Alloys Pvt. Ltd in an auction held pursuant to a sale conducted for
enforcement of a recovery certificate issued by the Debt Recovery
Tribunal. The respondent took over possession of the property and the
sale was confirmed by the order of the Recovery Officer dated 8
December 2005. The terms of the auction sale of the properties of M/s D
R & J Alloys Pvt. Ltd stated that the sale was conducted on “as is
where is basis”.
233. On 30 December 2005, the respondent applied to the appellant
for a new electricity connection. This was followed by a subsequent
letter dated 2 January 2006. By letter dated 12 January 2006, the appellant E
refused to give a new electric connection unless the arrears of Rs 11
crores of the erstwhile owner of the property were paid. The respondent
filed a writ petition before the Bombay High Court, seeking an electricity
connection. On 13 October 2006, the High Court passed the impugned
order granting interim relief to the first respondent. The High Court took
note of the pending referral of the legal issue to a larger bench of this F
Court. It observed that the right of the Electricity Board to claim arrears
from auction purchasers hinged upon the adjudication of the said issued.
The High Court directed the Electricity Board to grant interim electricity
connection subject to final adjudication of the rights of the parties.
234. The appellant herein preferred the present Special Leave G
Petition against the interim order of the High Court. On 9 July 2007,
leave was granted by this Court and the case was tagged with Civil
Appeal No. 5312-5313 of 2005. The impugned order of the High Court
granting interim electricity connection was stayed by this Court.
H
746 SUPREME COURT REPORTS [2023] 9 S.C.R.

A 235. The submission which has been urged by Mr Ajit Bhasme,
senior counsel appearing on behalf of the appellant is that the first
respondent knowingly purchased the premises with the liability to pay
past dues, evident from clause 3 and clause 4 of the terms of the auction
sale. Accordingly, it has been urged that the respondent is liable to pay
the dues in view of Condition 23(b) of the MSEB Conditions of Supply.
B
Mr MY Deshmukh, counsel appearing on behalf of the first respondent
has urged that the MSEB Conditions of Supply 1976 are inapplicable
after the enactment of the Maharashtra Electricity Supply Code 2005.
236. The respondent has in its written submissions has brought to
the attention of this Court the suit for recovery96 initiated by the appellant
C against the erstwhile owner. During the pendency of the present appeal,
the trial court by an order dated 30 September 2009 passed a decree in
favour of the appellant for the debt due from the erstwhile consumer
and its proprietor in respect of the arrears of electricity bills. The first
respondent has urged that in view of the decree, the appellant ought to
D have withdrawn the present appeal instead of protracting the litigation.
237. At the outset, we would deal with the submissions on the
applicability of the 2003 Act. The electricity connection was permanently
disconnected in 2002, and the first respondent acquired ownership rights
in the premises in 2005. The first respondent made the application for a
E new electricity connection on 30 December 2005. Hence, the first
respondent requested the appellant to supply electricity after the
Maharashtra Electricity Supply Code 2005 came into effect on 20 January
2005. Accordingly, the Maharashtra Electricity Supply Code 2005 would
govern the facts in the present case. In terms of Regulation 10.5 of the
Maharashtra Electricity Supply Code 2005, any unpaid electricity dues
F constitute a charge on the premises, and would be recoverable from the
new owner or occupier of the premises to whom the premises have
been transferred.
238. Furthermore, the terms of the auction sale put the first
respondent on notice that this was a sale on “as is where is” basis and
G the purchaser would be liable for arrears of different authorities, including
MSEB, if an excess amount in sale proceeds was not available. The
relevant clauses are extracted below:

H
96 Spl. Civil No. 104 of 2003
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 747
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

“3. So far known to this office there are (no) arrears of Municipal A
tax, MSEB or Corporation tax or both taxes. However, any
legitimate claim made in that behalf shall be paid from out of the
sale proceeds if the same is in excess of the amount mentioned in
the Recovery Certificate. In case such excess amount is not
available the liability shall be borne by the purchaser.
B
However, prospective purchaser is expected to check up
from MIDC, CIDCO, MSEB, Municipal corporation etc. for the
dues if any on the property.
4. The properties shall be sold on “AS IS WHERE IS BASIS”.”
(emphasis supplied) C
239. Accordingly, the dues owed by M/s R & J Alloys Pvt. Ltd to
the MSEB are a charge on the property purchased by the first respondent
in a public auction. The charge attaches to the property and a distribution
licensee is entitled to recover the unpaid dues from the first respondent
subject to the permitted period specified in the proviso to Regulation D
10.5.
240. So far as the filing of civil suit by the appellant in 2003 against
the erstwhile owner is concerned, that is an alternative remedy provided
by law which the appellant can undertake in order to recover electricity
arrears from the erstwhile consumer. Besides disconnection of electricity, E
the MSEB has the remedy to file civil suits followed by execution petitions
for recovery of the dues from the erstwhile consumer. The filing of the
civil suit will not debar the appellant from recovering any outstanding
charge for electricity from a person to whom the property is transferred
or the occupier of the said premises where new electricity connection is
sought in terms of Regulation 10.5. F
241. The counsel for the respondent has urged that although the
decree in the civil suit was passed in favour of the appellant on 30
September 2009, the appellant has failed to execute it till date. The
distribution licensee should not let arrears mount up and must be prompt
in disconnecting electricity supply and thereafter pursuing its remedy by G
filing a suit for recovery of moneys/ dues. It becomes the bounden duty
of the distribution licensee to diligently pursue the decree awarded and
recover amounts from the real defaulter. Any amount that may have
been realised in the execution of the decree would have to be given due
credit for in determining the amount payable by the respondent.
H
748 SUPREME COURT REPORTS [2023] 9 S.C.R.

A 242. In view of the reasons which have been adduced earlier, we
allow the appeal and set aside the order of the High Court.
III. Gujarat
243. In Gujarat, the right of the Electric Utilities to demand
outstanding dues is traceable to the following provisions:
B
a. Up to the enactment of the 2003 Act on 10 June 2003:
The governing legislation consists of the 1910 Act and the
1948 Act. Clause 2(j) of Conditions of Supply of the Gujarat
Electricity Board was inserted by a notification dated 10 August
2001. It reads:
C
“2(j) Recovery of old dues:
Reconnection or new connection for any premises, where there
are arrears of the Board pending from the consumer/occupier,
shall not be entertained. The new successor/ occupier has to
D clear these dues of the previous consumer before the
application of successor/occupier is processed for supply of
electricity. If the Board, at a later date, gets the full or part of
these dues from the previous consumer, the amount shall be
refunded to the successor/occupier after adjusting the costs
including legal expenses to recover such arrears and the refund
E shall bear no interest.”
b. From 10 June 2003 to 31 March 2005: As per Section
185(2)(a) of the 2003 Act, the extant Conditions of Supply
continued to apply.
c. From 31 March 2005 when the Supply Code came into
F
force: Clause 4.1.11 was notified under the Supply Code. The
relevant regulation is as follows:
“Regulation 4.1.11
An Application for new connection, reconnection, addition or
G reduction of load, change of name or shifting of Service Line
need not be entertained unless any dues of the Applicant to
the Distribution Licensee in respect of any other service
connection held in his name anywhere in the jurisdiction of
the Distribution Licensee have been cleared.”

H
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 749
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

d. From 20 August 2010 when the Supply Code was A
amended: Clauses 4.1.11, 4.1.16, and 4.8 of the Supply Code
were notified under Section 43 read with Section 50. Clause
4.1.11 post the amendment in 2010 reads thus:
“Clause 4.1.11
An application for new connection, reconnection, addition or B
reduction of load, change of name or shifting of service line
for any premises need not be entertained unless any dues
relating to that premises or any dues of the applicant to the
Distribution Licensee in respect of any other service
connection held in his name anywhere in the jurisdiction of C
the Distribution Licensee have been cleared.
Provided that in case the connection is released after recovery
of earlier dues from the new applicant and in case the licensee,
after availing appropriate legal remedies, get the full or part of
the dues from the previous consumer/owner or occupier of D
that premise, the amount shall be refunded to the new
consumer/owner or occupier from whom the dues have been
recovered after adjusting the expenses to recover such dues.”
The High Court of Gujarat had occasion to deal with the validity
of Clause 2(j) of the Conditions of Supply and Clause 4.1.11 of the Gujarat E
Electricity Supply Code.
Item 101.2: M/s Navyug Steel Cast and Anr. v. Paschim
Gujarat Vij Co.; Civil Appeal No. 7303 of 2005
244. On 10 August 1998, a petition for winding up of Anik Steel
Ltd. was filed wherein an order for winding up of the company was F
passed and an Official Liquidator was appointed. By an advertisement
dated 21 December 2001, the Official Liquidator invited tenders for the
auction sale of the property of the previous owner. The appellant
submitted an offer of Rs. 35.5 lakhs for purchase of the property on an
“as is where is” basis. The offer letter specified that the petitioner “shall
G
not be responsible for any of the past dues of the Gujarat Electricity
Board, Excise and Customs Department, Sales Tax and Income Tax
Department and of any outsiders whether it is Government, Semi-
Government Corporations and/ or Board, Bank or of any private
parties”. After inter se bidding, the appellant’s offer of Rs. 45.5 lakhs
was found to be highest. On 23 July 2022, the Official Liquidator submitted H
750 SUPREME COURT REPORTS [2023] 9 S.C.R.

A a report before the Gujarat High Court for confirmation of the sale in
favour of the appellant for Rs. 45.5 lakhs. The High Court accepted the
sale in favour of the appellant subject to certain terms and conditions.
One such condition was:
“10. The purchaser shall be liable to pay all statutory dues,
B if any, due and payable on the properties of the company
for the period after the date of winding up. The payment of
such dues for pre-liquidation period shall be settled as per the
provisions of the Companies Act, 1956. However, dues, taxes,
cess, if any applicable on the sale of assets shall be paid by the
purchaser.”
C
(emphasis supplied)
245. In accordance with the auction terms laid down by the High
Court, the consideration was paid and possession of the assets was handed
over to the appellant. When the appellant applied for a fresh connection,
D the respondent insisted on payment of outstanding dues of the previous
owner before granting a fresh connection. The appellant filed a writ
petition challenging Clause 2(j) of the Conditions of Supply. The Single
Judge allowed the writ petition and struck down clause 2(j) of the
Conditions of Supply for being arbitrary and inconsistent with statutory
provisions of the law. The respondent preferred special appeals against
E the judgment of the Single Judge before the Division Bench. The Division
Bnech by judgment dated 18 July 2005 upheld the validity of Clause 2(j)
on the ground that it fell within the ambit and scope of Section 49(1) of
the 1948 Act.
246. On 10 August 2001, Gujarat Electricity Board issued a
F notification under Section 49 of the 1948 Act incorporating Condition
2(j) in the ‘Condition and Miscellaneous Charges for Supply of Electrical
Energy’. Condition 2(j) empowered the Board to insist on payment of
arrears of electricity dues of the former consumer as a condition
precedent to the restoration of the earlier connection or release of a
G fresh connection in favour of the new owner/occupier of the premises.
As discussed in preceding paragraphs, such conditions can lawfully be
stipulated in light of the overall scheme of the 1910 Act and the 1948
Act. Such terms and conditions stipulated in accordance with Section 49
of the 1948 Act have a statutory character.

H
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 751
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

247. On 23 July 2002, the High Court passed an order confirming A
the sale in favour of the appellant on the terms and conditions mentioned
in the order. The terms and conditions of the auction sale show that the
property was sold on an “as is where is” basis to the appellant. The
appellant has relied on Condition 10 to argue that it was only liable to pay
charges accrued after the date of winding up order. It has been further
B
averred by the appellant that the arrears are for a period before the date
of winding up order, which is 10 August 1998. The facts of the case
make it evident that the appellant requested supply of electricity by a
letter dated 12 August 2002. In the present case, the payment of electricity
dues, being statutory in nature, cannot be waived. The auction conditions
are subservient to the statutory demand made under Condition 2(j) of C
the Conditions of Supply. Therefore, we uphold the impugned judgment
of the High Court.
248. Before parting, we would like to highlight that by an order
dated 18 November 2011, this Court directed the appellant to deposit
Rs. 25 lakhs with the respondent and secure the balance principal amount D
by giving a bank guarantee of a nationalised bank in the name of the
respondent within a period of eight weeks from the date of the order to
obtain a fresh electricity connection. The relevant part of the said order
is reproduced below:
“The principal amount claimed by Paschim Gujarat Vij Company E
Limited is to the tune of Rs. 1.26 crores. The applicant-petitioner
has applied for grant of fresh electricity connection which is being
denied on the ground that arrears, referred to above, have not
been paid by the previous owner [consumer]. The petitioner is an
auction purchaser. Pending further orders, we direct the petitioner
to deposit Rs. 25 lakhs with Respondent No. 1 and secure balance F
principal amount by giving a Bank Guarantee of a Nationalised
Bank in the name of Paschim Gujarat Vij Company Limited -
Respondent No. 1 within a period of eight weeks from today,
without prejudice to their rights and contentions. Upon compliance
of above conditions, electricity connection shall be granted.” G
249. This Court has been informed that the appellant chose not to
get the fresh connection in terms as set out by this Court. Through an
Interlocutory Application, the appellant has indicated that it is impossible
for them to pay the total accumulated dues amounting to Rs. 578 lakhs
with interest and other charges. Therefore, the appellant seeks the benefit H
752 SUPREME COURT REPORTS [2023] 9 S.C.R.

A of the amnesty scheme dated 29 March 2012 issued by the Gujarat
government. Further, the appellant submits that it can only clear its original
liability upto Rs. 126 lakhs. The relevant part of the said application is
extracted hereunder:
“10. The applicants submit that the applicant is approaching this
B Hon’ble Court with the intention to get the benefit of this amnesty
scheme of Government of Gujarat for only reasons that if the
applicant succeeds, the Applicant would be required to pay original
dues if the applicant lose the matter in the Hon’ble Supreme Court
the liability of the applicant will be only upto Rs. 126.00 Lakhs
(original amount) and the Applicant will not be liable to pay any
C other delay payment charges and other charges, etc. Therefore,
the applicant prays before this Hon’ble Court that is liability of the
Applicant is fixed only upto the amount of the original dues i.e.
Rs. 126.00 Lakhs without any interest and penalty, etc., the
applicant is ready to deposit such sum as is required by this Hon’ble
D Court to be deposited with respondent no. 1 and for the balance
the applicant is ready to submit the bank guarantee and/ or is
ready to deposit the whole amount with this Hon’ble Court as
security.”
We allow the above application in the interests of equity, justice,
E and fairness to the extent that the appellant is only liable to pay the
principal amount of Rs. 126 lakhs and any outstanding interest accrued
prior to the date of application for supply of electricity.
Item 101.3: Torrent Power AEC Limited v. M/s Shreeji
(Rakhail) Commercial Cooperative Housing Society Limited &
F Others; SLP (C) No. 2880 of 2007
250. The appellant is an electric utility engaged in distribution and
retail supply of electricity in Ahmedabad. Raipur Manufacturing Company
Ltd, the previous owner, became liable to pay an amount of Rs. 12 crores
towards electricity dues together with running interest thereon. On
G account of the outstanding debt, the appellant disconnected electricity
supply to the premises of the company at Ahmedabad on 15 July 1999.
In 2001, winding up proceedings were filed against the previous owner
before the Company Court of the High Court of Gujarat. The sale of
property of the previous owner was sanctioned by the High Court of
Gujarat by an order dated 2 December 2002 in favour of the respondent.
H The relevant terms and conditions imposed by the High Court were:
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 753
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

“1. The sale of properties of the Company shall be on “as is where A
is and whatever there is” basis and the Official Liquidator will not
transfer the title except the title which the company was having
prior to its liquidation.
***
5. All the statutory dues including the municipal dues, taxes, cess, B
etc. shall be paid and borne by the purchaser, Ajar Enterprises
Private Limited. The purchaser shall be solely liable to all levies,
charges, claims, arrears, etc. that may be existing or imposed by
any Central, State or local authorities or any other person claiming
through them in whatever manner, on the said properties sold.” C
251. After taking possession of the property, the respondent
addressed a letter dated 7 January 2004 to the appellant for grant of an
electricity connection. However, the appellant declined to grant supply
of electricity unless the respondent paid the pending dues of the erstwhile
owner. The respondent filed a writ petition before the High Court of D
Gujarat challenging the appellant’s refusal to grant an electricity
connection. Through a common judgment, the Single Judge held that
respondent, being an auction purchaser, cannot be called upon to clear
the past arrears of the previous owners in the absence of any statutory
provision. Further, it was observed that there was no condition between
the parties by which the respondents were made liable to pay the arrears E
of electricity dues of the previous owners. It was also observed that the
state government had not incorporated any condition similar to Condition
2(j) of the Conditions of Supply in respect of the Petitioners. The Division
Bench in the impugned judgment dated 1 May 2006 upheld the decision
of the Single Judge. F
252. The respondent has submitted that the Gujarat Electricity
Supply Code relied upon by the distribution licensee has no application to
the facts of the present case. According to the auction purchaser, the
Gujarat Electricity Supply Code came into force with effect from 31
March 2005, whereas the respondent auction purchaser applied for G
electricity on 13 August 2004, that is, much prior to the Electricity Supply
Code having come into effect.
253. In the impugned judgment, the High Court considered the
purport of the Regulation 4.1.11 of the Gujarat Electricity Supply Code
and held that it was not applicable to the respondent. According to the
H
754 SUPREME COURT REPORTS [2023] 9 S.C.R.

A High Court, the sole reason that Regulation 4.1.11 of the Gujarat
Electricity Supply Code was inapplicable was because the said regulations
only applied to the electricity dues of the applicant, and did not make
the applicant liable to clear the dues of the previous owner.
254. The High Court omitted to notice that the Gujarat Electricity
B Supply Code came into force with effect from 31 March 2005 while the
respondent applied for electricity connection on 13 August 2004. Hence,
the respondent had applied for a connection before the coming into force
of the Gujarat Electricity Supply Code. Thus, the said regulations will
not be applicable to the facts of the present case.
C 255. Since the respondent applied for electricity connection on 13
August 2004, the 2003 Act and the rules and regulations made thereunder
are inapplicable in the instant case. It has been admitted by the appellant
that there was no statutory condition requiring the respondents to pay
the outstanding electricity dues of the previous owner at the point of
time when they applied for electricity connection.
D
256. The appellant has submitted that Ahmedabad Electricity
Company,97 the predecessor of the appellant, notified the Conditions of
Supply on 14 October 1994, and that would be applicable. For the period
from 10 June 2003 till 31 March 2005, when the Electricity Supply Code
came into force, the 1994 Conditions of Supply continued to operate in
E terms of Section 185(2)(a) of the 2003 Act. Condition 2 of the 1994
Conditions of Supply provided that a requisition for supply of electrical
energy shall be made in accordance with the requisition form attached
at Annexure A of the said conditions and shall be signed by the owner or
occupier of the premises for which supply is required. Annexure A of
F the said conditions provides a form of requisition for supply of energy.
The requisition form is not only limited to a new connection, but also
extends to reconnection, extension of load, tapping connection, and name
change. The form also requires the applicant to pay all the dues of energy
bills and other charges up to the date of transfer. The relevant undertaking
is extracted below:
G
“I/We hereby give consent to transfer above mentioned service
in the name of the applicant and I/We abide to pay all the dues of
energy bills & other charges upto the date of transfer.”

H 97 “AEC”
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 755
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

257. A perusal of Annexure A makes it evident that the above A
extracted undertaking is actually the undertaking of a ‘current consumer’
giving consent to transfer the service connection and undertaking to pay
all past dues. This is not an undertaking of an applicant, which has been
separately provided for in the same form. Therefore, Annexure A makes
a clear distinction between a ‘current consumer’ and an applicant for
B
electricity connection. Since the respondent purchased the said property
through an auction-purchase, there was no ‘current consumer’ to give
any consent. Therefore, the undertaking under Form A will not be
applicable qua the respondent. Hence, we find no reason to interfere
with the findings of the High Court. The appeal shall stand dismissed.
Item 101.4: Dakshin Gujarat Vij Co. v. Apurva Chemicals, C
SLP (C) No. 37871 of 2012 and 101.17: Paschim Gujarat Vij
Company v. Apurva Chemicals, SLP (C) No. 18280 of 2013
258. A power connection was issued in favour of Arunesh
Processors Pvt Ltd, the previous owner. Due to non-payment of energy
bills, the agreement with the power supply company was terminated D
with effect from 01 February 1995. In 1995, the appellant filed a suit for
recovery of Rs. 3.41 lakhs against the previous owner before the Civil
Judge, Sr. Division, Valsad. In 2002, the suit was decreed in favour of
Gujarat Electricity Board, which was the predecessor of the appellant.
Arunesh Processors Pvt Ltd was wound up in 2002 and its assets were E
auctioned by the Bombay High Court on an “as is where is basis”. The
respondent participated in the auction proceedings and acquired the assets
of Arunesh Processors Pvt Ltd at Vapi, Gujarat. The sale was confirmed
in favour of the respondent for Rs. 70 lakhs on 11 August 2005 by the
Bombay High Court. Thereafter, on 12 December 2008 a deed of
conveyance was executed between the Official Liquidator, High Court F
of Bombay and the respondent. In 2010, the appellant filed Darkhast
No. 7 of 2010 for execution of the decree passed in the suit in 2002.
259. On 16 December 2010, the respondent approached the
appellant requesting it to release power supply to the plot at Vapi, Gujarat.
On 03 January 2011, the appellant informed the respondent that power G
supply cannot be released on the plot because Darkhast No. 7 of 2010
was pending and dues were not recovered from the previous owner.
Since the respondent was in need of power supply on the said plot, it
paid the outstanding dues of the previous owner to the tune of Rs. 17
lakhs on 25 February 2011. However, on 17 August 2011, the respondent H
756 SUPREME COURT REPORTS [2023] 9 S.C.R.

A approached the appellant to refund the paid amount. The appellant refused
to refund the amount, contending that the previous owner had not yet
acknowledged the receipt of their claim. The respondent instituted a
writ petition before the High Court of Gujarat for challenging Clause
4.1.11 of the Gujarat Electricity Supply Code as being inconsistent with
the 2003 Act. The High Court in the impugned judgment dated 03
B
December 2012 held that Clause 4.1.11 of the Conditions of Supply was
ultra-vires the provisions of 2003 Act.
260. It is beyond the pale of doubt that the respondent requested
the appellant to release power supply to their premises on 16 December
2010. At the relevant point of time, the amended Clause 4.1.11 was in
C force. In the impugned judgment dated 03 December 2012, the High
Court held that the State Commission is not authorised to prescribe a
condition under Section 50 of the 2003 Act for payment of dues of a
previous owner or occupier from the new owner as a precondition to
supply electricity. It was further held that Section 43 of the 2003 Act
D does not impose any condition for payment of electricity dues attached
to the premises before getting supply of electricity. The High Court
observed that the phrase “any dues relating to that premises” conveyed
that the premises were held to be a defaulter of electricity dues and
charges, and was inconsistent with the provisions of the 2003 Act. On
the basis of the above reasons, the High Court concluded that the first
E part of Clause 4.1.11 was ultra vires the provisions of Sections 43, 50,
56, and 181 of the 2003 Act.
261. The appellant submitted that the Board is empowered to
frame terms and conditions providing for recovery of electricity dues
attached to the premises. It has been further contended that since the
F auction was held on “as is where is basis”, the auction purchaser was
required to carry out due diligence in regard to the dues owed against
the property being purchased. The appellant has further submitted that
the regulations imposing a condition that the dues relating to particular
premises should be cleared before electricity supply is restored or a new
G connection is given to the premises cannot be termed as arbitrary or
unreasonable. To reinforce their argument, the appellant has relied upon
the observations made by this Court in Paschimanchal Vidyut Vitran
Nigam (supra).
262. On the other hand, the respondent contended that there is no
H provision under the 2003 Act enabling the distribution licensee to impose
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 757
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

a pre-condition of the clearance of dues relating to the previous owner A
or their premises. It has been further argued that Clause 4.1.11 affixing
the dues to the premises is contrary to Section 43 of the 2003 Act, which
affixes the liability to pay electricity dues and charges on the consumer.
The dues relating to the premises would be a financial encumbrance on
the property, and as such would be transferred with the sale of the land.
B
263. In the instant case, the first part of Clause 4.1.11 provides
that an application for electricity supply for any premises need not be
entertained unless any dues relating to the premises have been cleared.
The said clause indicates that a distribution licensee can withhold
connection to the premises unless its dues with respect to the said
premises have been cleared. In our opinion, the High Court has erred in C
observing that the phrase “any dues relating to that premises” is
inconsistent with the provisions of the 2003 Act. The use of the said
phrase does not entail that the premises are deemed to be a defaulter
and made liable to pay electricity dues, as the High Court suggests.
According to Clause 4.1.1 of Electricity Supply Code, it is the applicant D
who has to make an application in terms of Annexure A and pay all the
required electricity dues and charges, including the electricity arrears of
the previous owner relating to the premises. Thus, on the overall reading
of the Electricity Supply Code, it becomes evident that dues of the
previous consumer relating to that premises are sought to be recouped
from the new owner or occupier of the premises. E

264. In the impugned judgment, the High Court referred to the
example of a multi-storied residential building to observe that “the
licensee may successfully demand that a new purchaser of a different
flat whose vendor was not a defaulter, would still be liable to pay
the arrears of a defaulting consumer of another flat of the same on F
the ground that it is a part of the same premises.” In this context, we
have already held that there is a synergy between the consumer and
premises. A new owner can only be obligated to pay the electricity arrears
of the previous owner with respect to the premises to which electricity
connection is being sought. Therefore, the phrase “any dues relating to G
that premises” has to be understood with regard to the supply of electricity
made to the premises when it was in occupation of the previous owner.
265. We have already clarified that electricity arrears do not
automatically become a charge over the premises. A Statutory charge is
created only where there is an express provision of law providing for H
758 SUPREME COURT REPORTS [2023] 9 S.C.R.

A creation of a statutory charge upon the transferee. Clause 4.1.11 does
not have the effect of creating a charge on the property as it does not
specifically provide for creation of a statutory charge. Besides, the phrase
“any dues relating to that premises” cannot be interpreted to impute
financial liability on the premises.
B 266. Moreover, the High Court has held that the 2003 Act does
not enable the Electric Utilities to frame conditions to recover dues of a
previous consumer from a subsequent owner or occupier. We disagree
with this reasoning of the High Court in view of our analysis in the
preceding paragraphs, where we have held that the Electric Utilities can
specify the requirement that the subsequent owner or occupier of the
C premises has to pay the arrears of electricity dues of the previous
consumer as a pre-condition for the grant of an electricity connection.
However, such terms and conditions of supply should be valid and
reasonable by conforming to the overall scheme and purpose of the
2003 Act.
D 267. Consequently, we set aside the impugned judgment of the
High Court dated 2 December 2012. Any pending IAs are disposed of
accordingly.
Item 101.5: Madhya Gujarat Vij Co. Ltd. v. Agriculture
Produce Market Committee, SLP (C) No. 8197-8198 of 2014
E
268. Rajprakash Spinning Mills Ltd.98 was a consumer of the
Gujarat Electricity Board since 1967. On 31 December 1994, its power
was disconnected due to the non-payment of electricity dues. On 18
July 1995, the Gujarat Electricity Board instituted a suit in the Civil Court,
Nadiad against RSML for recovery of electricity charges amounting to
F Rs. 78 lakhs. In the meantime, RSML went into liquidation and the High
Court appointed the Official Liquidator. On 20 August 2002, the suit was
decreed in favour of the Electricity Board. In 2003, the Board lodged a
claim before the Official Liquidator with decree in the suit for Rs. 78
lakhs and legal expenses and interest up to December 2002, which
G cumulatively amounted to Rs. 1.39 crores.
269. On 17 December 2003, the Official Liquidator executed a
sale deed in favour of the respondent. The sale deed specifically mentions
the liability of the purchaser about the dues. On 25 February 2004, a
revised sale deed was registered and executed in favour of the respondent
98
H “RSML”
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 759
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

and the said sale deed was executed by the Official Liquidator in A
pursuance of the confirmation of the sale for a consideration of Rs. 97
lakhs.
270. On 10 April 2007, the respondent addressed a letter to the
appellant for release of the electricity connection. On 13 April 2007, the
appellant declined to grant a new connection unless the electricity charges B
amounting to Rs. 78 lakhs outstanding against the premises were paid.
The respondent filed a writ petition for the grant of an electricity
connection. The petition was dismissed by a Single Judge by an order
dated 08 September 2009 on the ground that the person who purchased
the premises had to pay the electricity dues of the previous occupant.
The Division Bench in the impugned judgment dated 16 July 2013 held C
that the subsequent purchaser is not liable to pay the electricity dues of
the previous owner.
271. The auction-purchaser submitted an application for a new
electric connection on 10 April 2007. The Gujarat Electricity Supply Code
was notified on 31 March 2005. At the relevant time, unamended D
Regulation 4.1.11 was applicable, according to which only the dues of
the applicant to the distribution licensee had to be cleared for the grant
of a new connection or for reconnection of electric supply. The said
regulation did not obligate the new owner to clear the electricity dues of
the previous owner. Therefore, the respondent could not have been made E
liable to pay the arrears of the previous owner as a pre-condition to
obtain a new electricity connection.
272. In view of the above reasons, we uphold the impugned
judgment dated 16 July 2013 of the High Court. The appeal shall stand
dismissed. F
Item 101.6: Torrent Power Limited v. M/s Shashwat Homes
Private Limited; SLP No. 19878 of 2007
273. Gujarat Steel Tubes Company99, the previous owner, was
subjected to liquidation proceedings and the electricity connection was
disconnected for non-payment of dues amounting to Rs. 1.5 crores. GSTC G
was ordered to be wound up by the Gujarat High Court. A parcel of the
GSTC’s land was bought in auction by Spectra Enterprises Private
Limited for a sum of Rs. 42.10 crores. In 2006, the name of the respondent
came to be mutated in the revenue records pertaining to the said parcel
99
“GSTC” H
760 SUPREME COURT REPORTS [2023] 9 S.C.R.

A of land. On 24 January 2007, the respondent approached the appellant
seeking a new connection for electricity in respect of the premises. The
appellant declined to grant a new connection pending the payment of the
outstanding electricity dues of the previous owner. The respondent
instituted a writ petition before the Gujarat High Court. By the impugned
judgment dated 31 January 2014, the High Court held that the subsequent
B
owner is not liable to pay the electricity dues of the previous owner.
274. The respondent approached the appellant for seeking a new
electricity connection on 24 January 2007. At the relevant time, the 2005
Electricity Supply Code was in force. Regulation 4.1.11 of the 2005
Electricity Supply Code required only the dues of the applicant, if any, to
C be paid at the time of the application for a new connection. In the affidavit
filed before the High Court, the appellant conceded that unamended
Regulation 4.1.11 was applicable to the respondent, who is the auction-
purchaser. The facts of the present clearly demonstrate that on 24 January
2007, when the auction-purchaser applied for electricity, unamended
D Clause 4.1.11 was operational and applicable. Therefore, the respondent
cannot be made liable to clear the dues of the previous owner in the
absence of any express statutory condition in that regard. The impugned
judgment of the High Court is upheld. The appeal shall stand dismissed.
Item 101.7: Dakshin Gujarat Vij Co. Ltd v. Amardeep
E Association; SLP (C) No. 73 of 2015
275. In 1994, Navsari Cotton and Silk Mills Ltd100 was declared a
sick industrial unit. As on the date of NCSML’s closure, it owed
outstanding electricity dues of Rs. 416.36 lakhs. On 17 October 1994,
the electricity supply was permanently disconnected. On 15 December
F 1996, the Board for Industrial and Financial Reconstruction101 prepared
a New Rehabilitation Scheme under Section 18 of SICA. The said
scheme provided for sale of surplus land of NCSML under paragraph
2(g):
“(g) The plant and machinery of the weaving section and the
G process house along with its building and the surplus land with the
company are proposed to be disposed of and the sale proceeds of
about Rs. 500 lakhs would be utilised for the implementation of
the scheme.”

100
“NCSML”
101
H “BIFR”
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 761
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

276. Pursuant to the Rehabilitation Scheme of 1996, the A
Government of Gujarat passed a resolution inter alia granting (i)
permission for sale of surplus land of NCSML; and (ii) exemption from
power cut for five years to NCSML with the condition that, any
reconnection charges as in the case of arrears shall be given to the
Gujarat Electricity Board in instalments. Later, in 1997, the workers of
B
NCSML decided to form a co-operative by the name Morarji Desai
Textile Labour Co-operative Society Industries Limited102 to take over
the unit of the company for its revival.
277. In 2003, the BIFR directed the disposal of the surplus land of
the said company by constituting an Assets Sale Committee. The notice
for sale of the surplus land was published in Gujarat Samachar in 2003 C
under which the land was to be sold on “as is where is basis”. The
relevant extract of the notice is set out below:
“As per the order of the B.I.F.R., the land situated at Vijalpore
bearing Survey No. 336/1, 311, 310/1, 310/2, 310/5, 310/7, 307/1,
308/1 having ownership of Navsari Cotton and Silk Mills, out of D
total admeasuring area of the land, 11 Lakh square feet land with
possession is to be given on AS IS WHERE IS BASIS as per the
prevailing laws and rules.”
278. The Assets Sale Committee accepted the offer made by
respondent for a consideration of Rs. 561 lakhs for the surplus land. The E
sale deed dated 29 May 2003 mentioned that the additional open land
was free from all encumbrances including lien and charge. Clause 9
further specified that “all taxes, land revenue, education cess, and
other outstanding dues up to date has been paid and if any dues
remain unpaid that is to be paid by the Company.” F
279. On 01 December 2004, the respondent applied for a new
connection. However, the appellant refused to grant a new connection
until the outstanding dues were cleared in terms of Clause 2(j) of the
Conditions of Supply. In 2006, the respondent moved an application before
the BIFR for a direction to release power supply. On 12 June 2006, the G
BIFR sanctioned a Revised Rehabilitation Scheme directing the appellant
to release an electricity connection to the respondent. Since the electricity
supply was not released, the respondent instituted a writ petition before
the High Court of Gujarat. In 2010, a Single Judge of the High Court
102
“MDTLCIL” H
762 SUPREME COURT REPORTS [2023] 9 S.C.R.

A allowed the writ petition by directing the appellant to release the electricity
connection to the residential establishments on the surplus land without
insisting on the payment of the dues of the previous owner. The Single
Judge held that Clause 2(j) was not applicable because the worker’s co-
operative society was a going concern and the Electricity Board can
recover the dues from them. The Division Bench in the impugned
B
judgment dated 21 November 2014 upheld the decision of the Single
Judge. The Court held that the BIFR scheme would be binding on the
appellant even though they were not a party to the proceedings. It was
further held that SICA is a special Act in comparison to the 2003 Act.
Therefore, a scheme framed under SICA was held to have an overriding
C effect over Clause 2(j) of the Conditions of Supply.
280. The respondent has contended that according to the BIFR
Scheme, electricity connection was provided to MDTLCIL separately
and not to the surplus land sold to the respondent. Hence, no dues could
have been recoverable from the respondent. The respondent further
D contended that the rehabilitation schemes framed by BIFR have an
overriding effect on the terms and conditions stipulated under Clause
2(j) of the Conditions of Supply. The respondents have also drawn
attention to Clauses 3 and 9 of the sale deed which exempted the
respondent from the payment of the past dues of NCSML. The said
clauses are extracted below:
E
“(3) [...] On the said property, there is no debt i.e. lien or charge
of anybody and is not under seize, attachment, or injunction of
any court. [...] On the said property, nobody has maintenance and
residence charge on it, there is no charge of Government taxes/
duties like, Income Tax, Sales Tax, etc. on said property. There is
F no acquisition, requisition, or reservation of Government or local
body or with that intention any notice in not served to the company.
In short, there is no one claiming right title or claim as mortgage,
claimant, shareholder or by other way or any other interest in the
said property and the company has all rights and authority for
G managing the said property by all way and by giving such trust
and assurance, the company has executed this sale deed. And
even if, in future, any one claims right on the property, then risk
thereof stands on the company and that is if due to such right or
chapter if any loss or expenses occurred by you or your heirs,
that is to be repaid by the company.”
H
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 763
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

[...] A
(9) All taxes, land revenue, education cess, and other outgoings
related to the said property and outstanding dues upto date has
been paid and if any dues remains to be paid that is to be paid by
the company. Now onwards, the responsibility for payment of all
taxes, etc. related to the said property will be on the first party. B
By support of this deed the purchaser can enter its name on said
property in Government, Semi-Government and local records, City
Survey Records and Municipal Records and for that we have to
give our signature, consent, and such signed consent admitted
being considered.”
C
(emphasis supplied)
281. To decide this issue, the question that arises before us is
whether SICA is special legislation in relation to the 1910 Act and 2003
Act. SICA was enacted with a view to secure the timely detection of
sick companies and speedy determination of the preventive, ameliorative, D
remedial and other measures which need to be taken with respect to
such companies. Section 18 mandated an operating agency such as a
BIFR to prepare a scheme providing for transfer of business, properties,
assets, and liabilities of the sick industrial company on terms and conditions
as specified in the scheme. According to Section 18(8) of SICA, once
the scheme is sanctioned, it is binding on the sick industrial company as E
well as the shareholders, creditors, and guarantors of the sick industrial
company. Section 32 of the SICA gave overriding effect to any rules or
schemes made under the provisions of the Act:
“32. Effect of the Act on other laws.—(1) The provisions of
this Act and of any rules or schemes made thereunder shall F
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 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 G
industrial company or in any other instrument having effect by
virtue of any law other than this Act.
***
(emphasis supplied)
H
764 SUPREME COURT REPORTS [2023] 9 S.C.R.

A 282. In Tata Motors Ltd v. Pharmaceutical Products of India
Ltd103 this Court held that SICA is a special legislation in comparison to
the Companies Act. The Court observed:
“22.The provisions of a special Act will override the
provisions of a general Act. The latter of it (sic Act) will
B override an earlier Act. The 1956 Act is a general Act. It
consolidates and restates the law relating to companies and certain
other associations. It is prior in point of time to SICA.
23.Wherever any inconstancy (sic inconsistency) is seen
in the provisions of the two Acts, SICA would prevail. SICA
C furthermore is a complete code. It contains a non obstante
clause in Section 32.
24. SICA is a special statute. It is a self-contained code.
The jurisdiction of the Company Judge in a case where reference
had been made to BIFR would be subject to the provisions of
D SICA.”
(emphasis supplied)
283. The 2003 Act also contains a provision similar to Section 32
of SICA. Section 174 of the 2003 Act provides that the provisions of the
said Act will have overriding effect notwithstanding anything contained
E in any other law for the time being in force. It therefore becomes evident
that both SICA and 2003 Act are special laws in their respective field.
284. In LIC v. D J Bahadur,104 this Court was confronted with
the question as to whether the LIC Act is a special legislation or a general
legislation with respect to the Industrial Disputes Act, 1947. Justice V R
F Krishna Iyer(supra) held that in determining whether a particular statute
is general or special, the focus has to be on the principal subject matter
and the particular perspective. On the basis of the observation that a
legislation may be general for some purposes and special for other
purposes it was held that the Industrial Disputes Act, 1947 being a special
law, prevails over the LIC Act. It was held:
G
“52. In determining whether a statute is a special or a general
one, the focus must be on the principal subject-matter plus the
particular perspective. For certain purposes, an Act may be general
103
(2008) 7 SCC 619
H 104
(1981) 1 SCC 315
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 765
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

and for certain other purposes it may be special and we cannot A
blur distinctions when dealing with finer points of law. In law, we
have a cosmos of relativity, not absolutes — so too in life.”
285. In UP State Electricity Board v. Hari Shankar Jain,105 a
three-judge Bench of this Court was called upon to determine whether
the Industrial Employment (Standing Orders) Act, 1946 is a special B
legislation and overrides the 1948 Act in regard to the age of
superannuation. Justice O Chinnappa Reddy, speaking on behalf of the
Bench held that the Industrial Employment (Standing Orders) Act, 1946
is a special legislation dealing with the conditions of service of workmen
in industrial establishments. On the other hand, the 1948 Act is an act to
coordinate the development of electricity, and does not seek to regulate C
the conditions of services of the employees of the State Electricity Board.
The Court held that the 1948 Act is a special legislation in regard to the
subject of development of electricity. It was observed:
“7. [...] The Electricity Supply Act does not presume to be an Act
to regulate the conditions of service of the employees of State D
Electricity Boards. It is an Act to regulate the co-ordinated
development of electricity. It is a special Act in regard to the
subject of development of electricity, even as the Industrial
Employment (Standing Orders) Act is a special act in regard to
the subject of conditions of service of workmen in industrial E
establishments. If Section 79(c) of the Electricity Supply Act
generally provides for the making of regulations providing for the
conditions of service of the employees of the Board, it can only
be regarded as a general provision which must yield to the special
provisions of the Industrial Employment (Standing Orders) Act in
respect of matters covered by the latter Act.” F

286. Keeping the above principle in mind, it is necessary to
examine the subject matter of SICA and the 2003 Act. Under SICA, the
operating agency had to prepare a scheme with respect to a sick industrial
company providing for financial reconstruction, proper management,
amalgamation, and any other preventive, ameliorative, and remedial G
measures. On the other hand, the 2003 Act is a consolidating law relating
to generation, transmission, distribution, trading, and use of electricity.
The 2003 Act relates specifically to supply of electricity to consumers,

105
(1978) 4 SCC 16 H
766 SUPREME COURT REPORTS [2023] 9 S.C.R.

A whereas SICA is silent on the aspects of the supply of electricity to
consumers. The principal subject matter of SICA is to provide
ameliorative measures for reconstruction of sick companies, while the
purpose of the 2003 Act is development of the electricity industry. Thus,
the purpose of the two enactments is entirely different. The 2003 Act is
a later enactment, and Section 175 specifically provides that the provisions
B
of the Act are in addition and not in derogation of any other law for the
time being in force, including the SICA.
287. In KSL & Industries Ltd v. Arihant Threads Ltd,106 a
three-judge Bench of this Court was called upon to decide which
enactment between the SICA and Recovery of Debts Due to Banks
C and Financial Institutions Act, 1993107 would prevail over the other. The
Court observed that although both the legislations are special laws in
relation to their respective subject matters, SICA would prevail over the
RDDB Act by virtue of the incorporation of a non-derogation clause in
the latter. In the RDDB Act, Parliament had specifically provided that
D the RDDB Act shall be in addition to and not in derogation of other laws
mentioned therein including SICA:
“49. The term “not in derogation” clearly expresses the
intention of Parliament not to detract from or abrogate the
provisions of SICA in any way. This, in effect must mean
E that Parliament intended the proceedings under SICA for
reconstruction of a sick company to go on and for that
purpose further intended that all the other proceedings
against the company and its properties should be stayed
pending the process of reconstruction. While the term
“proceedings” under Section 22 of SICA did not originally include
F the RDDB Act, which was not there in existence Section 22 covers
proceedings under the RDDB Act.”
(emphasis supplied)
288. Similarly, Section 175 of the 2003 Act provides that the
G provisions of the Act are in addition and not in derogation of any other
law for the time being in force. Therefore, by specifically providing that
the 2003 Act shall be in addition to and not in derogation of any other
laws for time being in force, the Parliament has preserved and give

106
(2015) 1 SCC 166
107
H “RDDB Act”
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 767
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

precedence to the proceedings under SICA. Section 32 of SICA provides A
an overriding effect to a scheme framed under it. Section 18 of the
SICA mandates an operating agency such as BIFR to prepare a scheme
providing for transfer of business, properties, assets, and liabilities of the
sick industrial company on terms and conditions as may be specified in
the scheme.
B
289. SICA is a special statute and Section 32 read with Section
18(8) of the SICA gives an overriding effect to the Scheme. The 1996
Rehabilitation Scheme and the 2006 Revised Rehabilitation Scheme bind
the appellant, but override Clause 2(j) of the terms and conditions of
supply.
C
290. Applying the above position of law to the facts of the present
case, it is apparent that the respondent purchased ‘surplus land’ of
NCSML in pursuance of the rehabilitation scheme framed by BIFR.
When the respondent was given possession of the land in 2003, NCSML
was a going concern as it continued to be operated by MDTLCIL. The
relevant clauses of the sale deed expressly excluded the respondent D
from the past dues of NCSML. In fact, the Clause 9 of the sale deed
reiterated that NCSML would be responsible to pay any outstanding
dues related to the land. Further, the 2006 Revised Rehabilitation Scheme
solely puts the onus of clearance of electricity arrears on NCSML, while
directing the appellant to release electricity connection to the respondent. E
Thus, NCSML being the consumer, was obligated to clear the arrears of
electricity pertaining to the said premises. The appellant could only recover
dues from NCSML, since it was a going concern at the time when the
respondent applied for supply of electricity. It is admittedly the case that
the appellant did not institute any proceeding for recovery of dues from
NCSML. This has been observed in the judgment dated 14 June 2010 of F
the High Court:
“Under these circumstances, no recovery was made by
Respondent against NCSML. If no recovery were made against
NCSML, the demand of dues against the Petitioner (respondent
herein) which is the purchaser of portion of land owners by G
NCSML is not sustainable.”
291. The High Court has rightly observed that the appellant cannot
selectively withhold electricity to the respondent under the guise of
demand for past electricity arrears. The stance of the appellant is opposed
H
768 SUPREME COURT REPORTS [2023] 9 S.C.R.

A to the rehabilitation scheme framed by the BIFR. The Revised
Rehabilitation Scheme formulated by the BIFR will be binding on the
appellant by virtue of Section 18(8) of SICA. According to the said
provision, once a scheme is sanctioned, it shall not only bind the sick
industrial company and the transferee company, but also creditors such
as the appellant. The statutory provision is extracted below:
B
“18. Preparation and sanction of Schemes -
(8) On and from the date of the coming into operation of the
sanctioned scheme or any provision thereof, the scheme or such
provision shall be binding on the sick industrial company and the
C transferee company or, as the case may be, the other company
and also on the shareholders, creditors and guarantors and
employees of the said companies.”
292. On 20 March 2015, a two-judge Bench of this Court passed
an interim order staying the operation of the impugned judgment in the
D following terms:
“The impugned judgment and order dated 21.11.2014 passed by
the High Court of Gujarat is stayed subject to Respondent No. 1
furnishing a bank guarantee of 50% of the total dues.
It is made clear that the electricity will be supplied only on
E furnishing the aforesaid bank guarantee.
Such of those purchasers who wish to pay the amount due to the
petitioner are permitted to do so. The petitioner will consider the
case on merits and take a decision on providing the electricity
connection.”
F
293. We accordingly vacate the stay on the impugned judgment
dated 21 November 2014. Any amount furnished by the respondent shall
be refunded back. The appeal shall stand dismissed.
Item 101.8: Paschim Gujarat Vij Company Limited v.
Sarifaben Mehboobbhai Solanki, SLP (C) No. 13400/2018
G
294. The electricity supply of Kanti Cotton Mills Pvt Ltd, the
previous owner, was disconnected on 09 June 1981. The mill was deemed
to be a ‘relief undertaking’ under Section 3 of the Bombay Relief
Undertakings (Special Provisions) Act, 1958. In 1982, Gujarat State

H
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 769
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

Textile Corporation108 took over the management of the Mill under the A
Industries (Development and Regulation) Act, 1951. In 1996, the BIFR
submitted its report stating that huge losses were being suffered and
recommended winding up under Section 20 of SICA. In 1997, the
Company Court ordered winding up and appointed the Official Liquidator.
On 21 October 1997, GSTC requested a disconnection of electricity
B
supply in view of the winding up proceedings. On 22 July 1998, a court
auction was held for the sale of immovable property. The offer of Jay
Mahakali Infrastructure Pvt Ltd.109 was found acceptable and confirmed
by the High Court. On 28 June 2004, a sale deed was executed in favour
of JMIPL for a consideration of Rs. 5.5 crores.
295. On 23 May 2005, the appellant served a notice on JMIPL C
demanding payment of Rs. 2.3 crores. On 05 September 2006, a Single
Judge allowed the petition which was instituted by JMIPL by holding
that the claim of the appellant for arrears of electricity dues, being in the
nature of a money claim, was required to be lodged within 3 years, and
was barred by limitation. The appeal was dismissed by the Division Bench D
by a judgment dated 04 April 2014 on the ground that the appropriate
remedy available to the appellant was to file a civil suit or get a garnishee
order so that the purchaser would know that there is a liability on the
property in question. On 16 December 2016, the High Court dismissed
the review petition preferred by the appellant on the ground of delay.
E
296. The respondents purchased a small residential house from
JMIPL in 2012. On 4 October 2014, the respondents applied for the
grant of an electricity connection. Since the request was not acceded to,
the respondent instituted a complaint before the Consumer Grievances
Redressal Forum seeking a connection without insistence on the dues of
the earlier owner as they had purchased the plot from JMIPL. The F
forum disposed of the case in light of Clause 4.1.11 of the Electricity
Supply Code, which was amended in 2010. The respondent approached
the Electricity Ombudsman, who relied upon the previous order of the
High Court to direct the appellant to supply electricity to the respondents
by an order dated 30 March 2015. The appellants filed a Special Civil G
Application before the High Court against the order of the Ombudsman.
On 16 February 2016, the Single Judge of the High Court dismissed the
application. The Division Bench of the High Court by judgment dated 8

108
“GSTC”
109
“JMIPL” H
770 SUPREME COURT REPORTS [2023] 9 S.C.R.

A September 2017 declined to interfere on the ground that a Special Leave
Petition110 preferred before this Court against the order dated 4 April
2014 was dismissed.
297. It is important to reiterate that the appellant had also denied
an electricity connection to JMIPL, the predecessor-in-title of respondent.
B However, JMIPL filed a petition under Article 226, which was allowed
by a Single Judge of the High Court. The appellant filed a Letters Patent
appeal, which was dismissed by the Division Bench of the High Court
by a judgment dated 04 April 2014 on the ground of limitation. The
Ombudsman, in its order dated 30 March 2015, based its decision on this
judgment of the Division Bench. The judgment dated 04 April 2014 attained
C finality. The right of the respondent to receive supply of electricity stood
crystallised on the judgment attaining finality upon the dismissal of the
Special Leave Petition filed by the appellant. Therefore, the order passed
by the Ombudsman, and the subsequent orders passed by the High Court
affirming the decision of the Ombudsman, do not suffer from any infirmity.
D The impugned judgment of the High Court is upheld for that reason. The
appeal shall stand dismissed.
Item 101.16: Torrent Power Ltd. v. M/s Abhisar
Developers, SLP(C) 9092-9094 of 2013
298. On 01 September 1986, New Gujarat Synthetic Company,
E the previous owner, went into liquidation. On 12 September 1986, the
electricity connection to the premises of the previous owner was
disconnected for non-payment of dues amounting to Rs. 77 lakhs. On 12
October 2006, a public auction was conducted of the immovable
properties of the previous owner, including their premises. These were
F purchased by Star Associates and conveyed to Abhisar Developers, the
respondent herein.
299. On 28 December 2006, the respondent-purchaser applied
for a new connection for the premises. However, the appellant called
upon the respondent to clear the outstanding dues of the premises. In
G 2007, the respondent filed a writ petition before the High Court of Gujarat
praying for new connection without payment of the arrears. In 2010, the
High Court allowed the petition and directed the Licensee to provide the
connection. On 3 December 2012, the Division Bench of the High Court

H 110
Diary No. 23261 of 2017
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 771
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

held that the Clause 4.1.11 of the Gujarat Electricity Supply Code, as A
amended in 2010, is ultra vires the provisions of the 2003 Act.
300. The appellant has referred to Clauses 4.1.16, 4.8.1, and 4.8.4
of the Electricity Supply Code to argue that the auction-purchaser cannot
deny knowledge of the requirement to clear the outstanding dues of the
premises. In response, the auction-purchaser has submitted that there B
was no statutory provision at the relevant time requiring the payment of
the dues of the previous owner from the subsequent owner as a condition
precedent for providing for a fresh connection.
301. The relevant Clauses 4.1.16, 4.8.1, and 4.8.4 of the 2005
Electricity Supply Code are extracted hereunder: C
“4.1.16 The Distribution Licensee shall give no dues certificate to
consumer on his request to avoid any possibilities of pending dues
of previous owner while purchasing new house/ premises.
[...]
D
4.8.1 The Consumer shall not without prior consent in writing of
the Distribution Licensee assign, transfer or part with the benefit
of the Agreement executed with the Distribution Licensee nor
shall part with or create any partial or separate interest there
under in any manner. Transfer of service connection will be
effected on application in case the registered Consumer is dead E
or if the ownership or occupation of the property has changed or
transferred. In all cases of such transfers, the arrears of every
description shall be paid in full together with transfer fee as
prescribed in relevant GERC Regulations.
[...] F
4.8.4 Where Premises to which electricity is supplied by Licensee
is transferred to transferee and the transferee does not get service
connection in the Premises transferred to his name, and continues
to use the service connection in previous name, the transferee
shall be responsible for payment of running energy bills as well as G
unpaid dues of energy bills and other amounts relating to the
service connection. The dues to the Distribution Licensee shall
be payable on demand, in default of which the supply to the
Premises may be disconnected, subject to the provisions of the
Acts, rules, and regulations for the time being in force. “
H
772 SUPREME COURT REPORTS [2023] 9 S.C.R.

A 302. Clause 4.1.16 of the Gujarat Electricity Supply Code obligated
the distribution licensee to provide no-dues certificate when requested
by a consumer “to avoid any possibilities of pending dues of the
previous owner while purchasing new house/premises.” This is only
a procedural provision and does not per se impose any obligation on the
subsequent owner of the premises. The term “consumer” will not bring
B
an auction-purchaser within the ambit of Clause 4.1.16 as an auction-
purchaser does not become a consumer before entering into an agreement
with the distribution licensee.
303. According to Clause 4.8.1, a consumer shall not transfer a
service connection without the prior consent of the distribution licensee.
C It further provides that transfer of a service connection will be effected
on application in case the registered consumer is dead or if the ownership
or occupation of property has changed or been transferred. In case of a
transfer, the clause provides that arrears of every description shall be
paid in full together with the transfer fee. However, the said provision
D only applies in situations where there has been a transfer of a service
connection. In the facts of the present case, we are dealing with a situation
where the auction-purchaser applied for a new connection of electricity
to the premises. Therefore, Clause 4.8.1 will not be applicable to the
facts of the present case.
E 304. Clause 4.8.4 provides that a transferee of premises would
be liable for the unpaid dues of energy bills of the defaulter transferor
only if they continue to use the service connection in the previous name
without transferring to their name. The said clause is only applicable
where a transferee applies for a transfer of connection, and not where a
transferee applies for a new power connection in their own name.
F
305. In the present matter, from the perusal of facts, it is evident
that the respondent applied for a fresh electricity connection for the
premises on 28 December 2006. Therefore, on the date of the submission
of the application for electricity by the respondent, the unamended Clause
4.1.11 of the Gujarat Electricity Supply Code was in force, according to
G which only the dues of the applicant to the distribution licensee had to be
cleared for a new connection or reconnection of electric supply. There
was no statutory provision requiring the auction purchasers to clear the
arrears of the previous owner as a condition precedent for getting a
fresh connection.
H
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 773
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

306. It was only in 2010 that clause 4.1.11 of the said Electricity A
Supply Code was amended which required the subsequent owner of the
premises to clear the dues of the previous owner as a condition precedent
for receiving a new electricity connection. Thus, at the time when the
respondent applied for a fresh connection of electric supply, there was
no existing provision requiring the applicant of a new connection to clear
B
the dues of the previous owner linked to the premises. Therefore, the
judgment dated 3 December 2012 of the High Court has to be upheld.
The appeal shall stand dismissed.
IV. Assam
307. The Assam Electricity Regulatory Commission framed the C
AERC Supply Code on 30 August 2004 in exercise of its power under
Section 50 of the 2003 Act to provide for recovery of electricity charges.
Clause 3.6 deals with requisition of supply. Clause 3.6.4 is extracted
below:
“3.6.4 In case of a person occupying a new property, it will be D
the obligation of that person to check the bills for the previous
months or, in case of disconnected supply, the amount due as per
the licensee’s records immediately before his occupation and
ensure that all outstanding electricity dues as specified in the bills
subject to limitation as per sub-section (2) of Section 56 of the
Act are duly paid up and discharged. The licensee shall be obliged E
to issue a certificate of the amount outstanding from the connection
in such premises on request made by such person.”
The impugned clause obligates a new occupier of a premises to
check the bills for previous months and ensure that all the outstanding
amounts are duly paid up and discharged. F
Item 101.15: Carbon Resources v. Assam Electricity
Regulatory Commission; SLP(C) No. 24502 of 2010
308. The previous owner, Eastern Steel and Alloys Company Ltd,
had electricity dues pending for the period 1988-1989, due to which
G
electricity supply was disconnected in 1992. The Assam State Electricity
Board111 filed a money suit before the District Judge against the previous
owner, which was decreed in its favour for Rs 2.07 crore on 24 February

111
“ASEB”
H
774 SUPREME COURT REPORTS [2023] 9 S.C.R.

A 1997. On account of the liabilities due to UCO Bank, a warrant of
attachment was levied on 30 June 2004.
309. In 2002, UCO Bank preferred an application against the
previous owner before the Debt Recovery Tribunal. On 16 March 2007,
the Recovery Officer of the Debt Recovery Tribunal, Guwahati issued
B an auction sale notice for the land in question. Clause 7 of the notice of
auction sale stipulated that the properties were being sold on “as is where
is” basis and subject to other conditions prescribed in the Second Schedule
of the Income Tax Act, 1961 and Rules made thereunder. The appellant
was the highest bidder and was declared as an auction-purchaser on 20
February 2008. On 24 March 2008, a sale certificate was issued in favour
C of the appellant and possession was handed over to the appellant by
UCO Bank on 27 March 2008. The Recovery Officer confirmed the
auction sale in favor of the appellant, who took over the possession of
the property on 27 March 2008. On 21 January 2009, the appellant applied
for a high-tension industries electricity connection, but ASEB denied it
D due to pending arrears of the previous owner.
310. Therefore, the appellant filed a writ petition before the Gauhati
High Court seeking: (i) an electricity connection without having to pay
the arrears of the previous owner; and (ii) challenging the vires of
Regulation No. 3.6.4 of the AERC Electricity Supply Code. On 2 June
E 2010, a Division Bench of the High Court delivered a judgment dismissing
the petition.
311. The appellant has drawn the attention of this Court to the
fact that the respondent had filed a suit against the previous consumer,
in which a decree was passed. The appellant submits that recovery of
F arrears of the previous owner could be effected in execution of the
decree. From the perusal of the facts, it is true that the respondent had
already instituted a money suit against the previous consumer and obtained
a decree. However, the respondent has stated before the High Court
that the execution could not be carried out successfully. In these
proceedings, we are not concerned with the validity of the execution
G proceedings initiated by the respondent against the previous owner.
312. The respondent has submitted that before purchasing the
premises, the appellant was required to undergo due-diligence and verify
that there were no electricity dues in relation to the premises. The
respondent has also questioned the validity of the sale in favor of the
H appellant on the ground that there was a subsisting money decree in
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 775
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

favour of the respondent and the premises were under Court attachment. A
The respondent also referred to a State Government order dated 29
November 2004 directing Deputy Commissioners and Sub-divisional
Officers to not issue sale/ transfer permission of land without clearance
of the electricity dues. On 26 June 2006, the electricity distribution
companies also issued a public notice requiring new consumers to clear
B
the dues of the previous consumer. The relevant extract of the said
public notice is hereunder:
“It is observed that some electricity consumers having outstanding
dues payable against energy consumption are trying to sale or
lease out their premises (including land and building) without
clearing the electricity dues. C

Govt. of Assam has already prohibited such transfer of premises
and made it mandatory to obtain electricity dues clearance
certificate from the concerned officers before applying for
permission of transfer.
D
All prospective buyers or lessee are hereby requested to satisfy
themselves regarding clearance of electricity dues before taking
over the possession of such premises.
In the event of non discharge of liabilities of electricity dues by
the previous owner, the purchaser/ lessee will be liable to clear E
the said dues before power supply provided to them in accordance
with provision of Terms and Condition regulation notified by Assam
Electricity Regulatory Commission.”
313. Therefore, it has been contended by the respondent that the
appellants were put to sufficient notice regarding the requirement of F
clearing dues before purchasing the property. In the present proceedings,
the validity of the auction sale of the premises to the appellant does not
arise for consideration, as it is a matter to be decided in separate
proceedings. We are only concerned with whether the appellant, being a
new owner of the premises, is liable to clear the dues of the previous
consumer before getting a supply of electricity. G
314. By the impugned judgment dated 2 June 2010, the High Court
has upheld the validity of Regulation 3.6.4 of the AERC Electricity Supply
Code. It held that the stipulation contained in the said regulation is
reasonable and within the ambit of the powers conferred by Section 50
of the 2003 Act. We are of the opinion that the impugned clause is H
776 SUPREME COURT REPORTS [2023] 9 S.C.R.

A reasonable and consistent with the provisions of the 2003 Act.
Accordingly, the appellant was obligated to check the bills for previous
months and ensure that all the outstanding amounts are duly paid up and
discharged. Therefore, we find no merit in the challenge to the decision
of the High Court. However, to balance the interests of parties, we
make it clear that if any arrears of electricity are received from the
B
previous owner, the amount shall be adjusted with the power bills of the
appellant.
V. West Bengal
315. In West Bengal, the WB Electricity Supply Codehave been
C enacted in 2012 under the 2003 Act. The relevant regulations - Clause
3.4.2, 4.6.1 and 4.6.4 - are set out below:
“3.4.2. The licensee shall be eligible to recover from a new and
subsequent consumer(s) the dues of the previous and defaulting
consumers in respect of the same premises only if a nexus
D between the previous and the defaulting consumer(s) and the new
consumer(s) in respect of the same premises is proved. The onus
of proving a nexus, if claimed by a licensee, shall lie on the
licensee.”
4.6.1. If the power supply to any consumer remains disconnected
E continuously for a period of one hundred and eighty days where
the disconnection has been effected in compliance with any of
the provisions of the Act or Regulations, the agreement of the
licensee with the consumer for supply of electricity shall be deemed
to have been terminated with consequential effect on expiry of
the said period of one hundred and eighty days. This will be without
F prejudice to such other action or the claim that may arise from the
disconnection of supply or related issues therefor. On termination
of agreement, the licensee shall have the right to remove the
service line and other installations through which electricity is
supplied to the consumer.”
G “4.6.4. Notwithstanding anything contained contrary elsewhere
in these Regulations where deemed termination of agreement has
taken place, then on the basis of application of any consumer new
service connection can only be provided in the same premises if
the outstanding dues against the deemed terminated consumer is
cleared along with the late payment surcharge.”
H
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 777
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

316. Under Regulation 3.4.2 of the WB Electricity Supply Code, A
the licensee is entitled to recover the outstanding dues of the previous
owner from the new and subsequent owner if there is a nexus between
the previous owner and the new consumer. Regulation 4.6.1 provides
that there shall be a deemed termination of agreement if the power
supply to any consumer remains disconnected for a continuous period of
B
180 days. Regulation 4.6.4 overrides other provisions of the WB Electricity
Supply Code as it contains a non-obstante clause. Under Regulation
4.6.4, a new consumer can be given a service connection only if the
outstanding dues against the same premises is cleared along with late
payment surcharge.
Item 101.18: Damodar Valley Corporation v. Sree Ramdoot C
Rollers Private; SLP (C) No. 15723 of 2020
317. On 30 June 2012, the appellant electricity utility, Damodar
Valley Corporation, and Capricorn Ispat Udyog Private Limited, the
previous owner, entered into an agreement for supply of electrical energy.
The bank guarantees furnished by the respondent expired on 4 June D
2014. The electricity connection to the previous owner was disconnected
on 21 September 2016 for default in payment of electricity dues to the
suit premises. On 14 August 2018, the State Bank of India advertised
the property for e-auction under SARFAESI Act for default of dues on
“as is where is basis”. The relevant terms and condition of e-auction E
sale are as follows:
1. “E-auction is being held on AS IS WHERE IS and will be
conducted online. ***
2. [To] the best of knowledge and information of the authorised
officer there is no encumbrance of the properties. However, F
the intending bidders should make their own independent
enquiries regarding the encumbrance title of properties put
on auction and claim rights dies affecting the properties
[prior] to submitting their bid. The E-auction advertisement
does not constitute and will not be deemed to constitute G
any commitment or any representation of the bank. The
properties is being sold with all the existing and future
encumbrance whether known or unknown to the bank and
authorised officer secured creditor shall not be responsible
in any way for the third party claims, rights, dues.
H
***
778 SUPREME COURT REPORTS [2023] 9 S.C.R.

A 7. It shall be the responsibility of the interested bidders to
inspect and satisfy themselves about the properties before
submission of the bid.”
Clause 1 of the terms and conditions provided that the e-auction
was being held on an “as is where is basis”. Clause 2 provided that the
B property was being sold with all present and future encumbrances,
whether known or unknown to the bank. Clause 7 provided that it was
the responsibility of interested bidders to inspect and satisfy themselves
about the properties before submission of the bid.
318. On 31 August 2018, the assets of the previous owner were
C taken over by Magnum Tradelink Private Limited through an e-auction.
The registration of property was done in the name of Shree Ramdoot
Rollers Private Limited, who is the respondent herein. On 04 October
2018, the respondent filed an application seeking a new connection from
the appellant. When the appellant refused, the respondent filed a writ
petition before the High Court of Calcutta. On 17 April 2019, the Single
D Judge allowed the petition and ordered the appellant to process the
respondent’s application within a period of three weeks. However, by its
letter dated 10 May 2019 the appellant refused to grant a connection in
view of the electricity dues of Rs. 22.05 crores payable by the erstwhile
owner in respect of premises. The respondent again approached the
E High Court seeking a direction for the supply of electricity to their
premises. On 19 June 2019, the Single Judge of the High Court allowed
the Writ Petition and directed the grant of an electricity connection to
the respondent. The Division Bench by a judgment dated 24 April 2020
dismissed the writ appeal and upheld the decision of the Single Judge.

F 319. In the impugned judgment dated 24 April 2020, the High
Court’s interpretation largely focused on the phrase “any consumer”
contained in Regulation 4.6.4. Under Regulation 4.6.4, a new consumer
can be given service connection only if the outstanding dues against the
same premises are cleared along with a late payment surcharge. The
Court referred to Isha Marbles (supra) to hold that the definition of
G “consumer” contained in Section 2(15) does not include an auction-
purchaser. However, the Court held that it is possible to bring an auction-
purchaser within the ambit of Regulation 4.6.4 if: (i) the distribution
licensee establishes the fact that the premises concerned were connected
to the works of the distribution licensee; (ii) for the purpose of receiving
H electricity; and (iii) in such a manner that the supply of electricity can be
resumed by ‘simply putting on a switch’.
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 779
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

320. The appellant has drawn attention to the fact that the supply A
of electricity to the premises was disconnected on 21 September 2016.
Therefore, the appellant submits that on the date of the sale of the
premises to the respondent, that is 31 August 2018, the supply of electricity
was disconnected for more than 180 days. Hence, it is the appellant’s
contention that Regulation 4.6.1 is applicable and there is a deemed
B
termination of agreement. It has been further contended that Regulation
4.6.4 has an overriding effect as it begins with a non-obstante clause.
The respondent, on the contrary, has argued that Regulation 3.4.2 would
be applicable in the present case. It has been argued that Regulation
4.6.4, despite having a non-obstante clause, has no bearing on the
operation of Regulation 3.4.2. C
321. The supply of electricity was disconnected on 21 September
2016. The supply stood disconnected for more than 180 days on 14
August 2018 which was the date of auction notice and on 31 August
2018 which was the date on which the premises were sold to the
respondent. In terms of Regulation 4.6.1, there was deemed termination D
of the agreement since the supply was disconnected for more than 180
days. However, Regulation 4.6.4 requires “any consumer” to clear the
outstanding dues of the premises to be eligible for grant of service
connection. In the present case, the respondent cannot be considered a
“consumer” unless an agreement was entered into with the distribution
licensee. This has also been reiterated in Isha Marbles (supra) in the E
following words:
“62. No doubt, from the tabulated statement above set out, the
auction-purchasers came to purchase the property after
disconnection but they cannot be “consumer or occupier” within
the meaning of the above provisions till a contract is entered into.” F

An auction-purchaser, such as the respondent, cannot be termed
as a “consumer” unless an agreement was entered into with the
distribution licensee. Therefore, we find no fault with the reasoning of
the High Court.
G
322. Consequently, we uphold the impugned judgment of the High
Court. The appeal shall stand dismissed.
H. Equity and Fairness
323. This Court is entrusted with the constitutional authority under
Article 142 of the Constitution to render complete justice. Where H
780 SUPREME COURT REPORTS [2023] 9 S.C.R.

A appropriate, this Court has to take recourse to its constitutional power
under Article 142 to bring about substantial justice.
324. Since the decision of this Court in Isha Marbles (supra),
the law as regards the liability of the subsequent owner for the payment
of arrears of the electricity dues of the previous owner has been in flux.
B Petitions challenging the decisions of different Electric Utilities were
filed as early as 2001. The orders of the High Courts had the effect of
either directing the Electric Utilities to grant electricity connections to
auction purchasers without insisting on payment of outstanding electricity
dues, or directing the auction purchasers to comply with the conditions
of supply or Electricity Supply Code, as the case may be. In some of the
C nineteen cases, this Court while granting leave passed interim orders.
The legal issue of whether electricity dues constitute a charge on the
property so far as the transferor and the transferee are concerned was
referred to a larger bench by an order of this Court way back in 2006.
The litigation in this batch of cases remained pending.
D 325. In the specific cases before us, where this Court has upheld
the validity of the subordinate regulations (Conditions of Supply or
Electricity Supply Code, as the case may be) and has held the relevant
regulation to be applicable to the factual matrix, the auction purchasers
would be liable to pay the outstanding dues of the previous consumer.
E On behalf of the Electric Utilities, claims have been made for interest on
such arrears.
326. This Court must bear in mind the element of public interest in
balancing the equities, particularly, at this stage where more than two
decades have passed in litigation since the issue first arose. The 2003
F Act was enacted to promote the development of the electricity industry,
while protecting the interest of consumers. It must be kept in mind that
many of the auction-purchasers are commercial entities who had
purchased the premises for commercial ventures. Electricity being a
necessity for operation of any commercial venture, denial of electricity
connections to the auction-purchasers for an indefinite period of time
G resulted in loss of business. The delay in the court proceedings should
not be to the further detriment of the litigants.
327. Taking all facts and circumstances into consideration, including
the lapse of more than two decades since the appeals were filed before
this Court and the equities arising in favour of one party or the other, we
H
K. C. NINAN v. KERALA STATE ELECTRICITY BOARD & 781
ORS. [DR DHANANJAYA Y CHANDRACHUD, CJI]

direct the Electric Utilities to waive the outstanding interest accrued on A
the principal dues from the date of application for supply of electricity by
the auction purchasers.
I.Conclusions
328. The conclusions are summarised below:
B
a. The duty to supply electricity under Section 43 of the 2003
Act is not absolute, and is subject to the such charges and
compliances stipulated by the Electric Utilities as part of
the application for supply of electricity;
b. The duty to supply electricity under Section 43 is with C
respect to the owner or occupier of the premises. The
2003 Act contemplates a synergy between the consumer
and premises. Under Section 43, when electricity is
supplied, the owner or occupier becomes a consumer only
with respect to those particular premises for which
electricity is sought and provided by the Electric Utilities; D
c. For an application to be considered as a ‘reconnection’,
the applicant has to seek supply of electricity with respect
to the same premises for which electricity was already
provided. Even if the consumer is the same, but the
premises are different, it will be considered as a fresh E
connection and not a reconnection;
d. A condition of supply enacted under Section 49 of the
1948 Act requiring the new owner of the premises to clear
the electricity arrears of the previous owner as a
precondition to availing electricity supply will have a F
statutory character;
e. The scope of the regulatory powers of the State
Commission under Section 50 of the 2003 Act is wide
enough to stipulate conditions for recovery of electricity
arrears of previous owners from new or subsequent G
owners;
f. The Electricity Supply Code providing for recoupment of
electricity dues of a previous consumer from a new owner
have a reasonable nexus with the objects of the 2003 Act;
H
782 SUPREME COURT REPORTS [2023] 9 S.C.R.

A g. The rule making power contained under Section 181 read
with Section 50 of the 2003 Act is wide enough to enable
the regulatory commission to provide for a statutory charge
in the absence of a provision in the plenary statute
providing for creation of such a charge;
B h. The power to initiate recovery proceedings by filing a suit
against the defaulting consumer is independent of the
power to disconnect electrical supply as a means of
recovery under Section 56 of the 2003 Act;
i. The implication of the expression “as is where is” basis is
C that every intending bidder isput on notice that the seller
does not undertake responsibility in respect of the property
offered for sale with regard to any liability for the payment
of dues, like service charges, electricity dues for power
connection, and taxes of the local authorities; and

D j. In the exercise of the jurisdiction under Article 142 of the
Constitution, the Electric Utilities have been directed in
the facts of cases before us to waive the outstanding
interest accrued on the principal dues from the date of
application for supply of electricity by the auction
purchasers.
E
329. Pending applications, if any, shall stand disposed.

Bibhuti Bhushan Bose Appeals disposed of.
(Assisted by : Shubhanshu Das, LCRA)

F

G

H