REPORTABLE

IN THE SUPREME COURT OF IDNIA

CIVIL APPELALTE JURISDICTION

CIVIL APPEAL NO. __3640________OF 2008

(Arising out of SLP (C) No. 20289 of 2006)

Tata Motors Ltd. …. Appellant

Versus

Pharmaceutical Products of India Ltd. & Anr. …. Respondents

J U D G M E N T

S.B. SINHA, J.

1.Leave granted

Introduction

2.Interpretation/application of the provisions of the Sick Industrial

Companies (Special provisions) Act, 1984 (SICA) vis-à-vis the Companies

Act, 1956 (1956 Act) is in question in this appeal which arises out of a

1

judgment and order dated 16

th

October, 2006 passed by a Division Bench of

the High Court of Judicature at Bombay in Appeal No.725 of 2006 arising

out of a judgment and order dated 13

th

February, 2006 passed by a learned

Single Judge of the Bombay High Court approving a Scheme filed by the

respondent herein in Company Petition No.470 of 2005 which was under

Section 391 of the 1956 Act.

Background Facts:

3.First respondent is a company registered and incorporated under the

1956 Act. It took loan from Tata Finance Ltd, predecessor-in-interest of the

appellant on interest @ 18% per annum. Disputes and differences arose

between the parties, which were referred to arbitral tribunal. An award was

passed on 30

th

July, 2002 in the Arbitration proceedings for a sum of

Rs.1,51,36,795/- together with interest @ 18% per annum till payment

and/or realization. It is stated that the total amount due to the appellant

from the respondent would be near about 5.7 crores of rupees. There were

other secured and unsecured creditors also.

Proceedings under SICA

2

4.Respondent being unable to pay the dues made a reference in terms of

Section 15 of SICA before the Board for Industrial and Financial

Reconstruction (BIFR). The BIFR appointed Industrial Development Bank

of India (IDBI) as an operating agency. It purported to have considered

various schemes. However, as Unit Trust of India (UTI) raised an objection

for giving up any of its dues and there were six secured creditors and large

number of unsecured creditors, BIFR on or about 27

th

October, 2004 passed

an order recommending winding up of the respondent. An appeal was

preferred thereagainst before the Appellate Authority for Industrial and

Financial Reconstruction (AAIFR).

5.The AAIFR granted stay of operation of the order of BIFR dated 27

th

October, 2004 by an order dated 13

th

September, 2005. Before the AAIFR

two separate Schemes were framed, one of them related to an arrangement

between the respondent and M/s. Wanbury Ltd. It agreed to settle the

outstanding dues of the creditors of PPIL. But before doing so, it thought it

fit to settle all the large creditors being Financial Institutions and Banks.

The scheme envisaged payment to a class of creditors.

3

It was also envisaged:

“ In addition, two immovable properties of

the company (which were its primary and main

assets) were to be sold and the unsecured

creditors were to be paid a proportion of the

sale proceeds. The balance of the sale proceeds

were to be paid over to the secured creditors.

Upon payment of the cash consideration,

Wanbury was to get complete control over the

Respondent including all its assets subject to

the approval of the merger before the

appropriate forum.

The scheme was to become effective upon

approval of overall settlement including an

order for merger or any other mode of

acquisition of assets of PPIL by Wanbury or

such scheme of PPIL by BIFR/AAIFR.”

Appellant was kept outside the said Scheme. The scheme involved

some selective secured creditors and some selective unsecured creditors.

Company Court Proceedings

6.Respondent, however, filed an application before the High Court of

Judicature at Bombay purported to be in terms of Section 391 of the 1956

Act during the pendency of the said appeal on or about 29

th

April, 2005. A

Scheme was presented before the Company Judge purported to be involving

4

about 80 percent of the creditors, most of them being banks, financial

institutions. Allegedly, even at that stage, it was not disclosed before the

Company Court that unsecured creditors listed in the Scheme were only a

selected few creditors, as a result whereof a large number of creditors had

been excluded.

7.Before the Company Judge, the appellant filed an application for

intervention. It filed an objection to the said Scheme primarily on the

grounds:-

“That the revival/rehabilitation of the company

was under consideration of a specialized body

formed under the Sick Industries Act which is a

special legislation and would prevail over the

provisions of the Companies Act.

That the non-obstante clause contained in the Sick

Industries Act will have the effect of overriding

and excluding the provisions of the Companies

more so where there is an overlapping between the

two Act.

That considering the scheme of the Sick Industries

Act, the revival/restructing of the company cannot

be considered by two separate forums separately.

That the scheme involved financial reconstruction,

sale of assets of the company and merger/take over

by Wanbury. These issues expressly fall within

the domain of the BIFR under Section 18 of the

Sick Industries Act.

5

That a scheme could not be presented only in

respect of selected unsecured creditors to the

exclusion of the other similarly placed unsecured

creditors such as the Petitioners.

That the entire scheme was nothing but a fraud

which was being played whereby the company and

its assets were being transferred to Wanbury

which was associated with the company itself.”

UTI also filed an objection.

8.The said contentions of the appellant, however, were rejected by a

learned Single Judge of the High Court by his order dated 13

th

April, 2006

and the Scheme was approved.

Order of the AAIFR

9.In view of the aforementioned order of the High Court, AAIFR also

on or about 1

st

June, 2006 approved the said Scheme opining :-

“5.Learned counsel for the Appellant Company

states that the scheme of Compromise and

Arrangement approve by the Bombay High Court

have been incorporated in the scheme of revival

cum merger submitted to IDBI (Operating

Agency) in pursuance of direction given by us on

9.11.2005.

6

6.In view of IDBI’s recommendation of the

revival cum merger proposal submitted by PPIL,

which is in accordance with Bombay High Court’s

order dated 13.2.2006, we set aside the impugned

order dated 27.10.2004 and direct BIFR to

consider the scheme vetted by the OA within a

period of three months from the date of this order

and take necessary further steps for the revival of

the appellant company in accordance with law.”

10.An intra court appeal was preferred thereagainst by the appellant on

or about 3

rd

August, 2006. By reason of the impugned judgment the said

Letters Patent Appeal has been dismissed, stating:-

“2.The Appellant claims to be an unsecured

creditor to the extent of Rs.1.51 crores as set out in

the award dated 30.7.2002 with further interest at

the rate of 18% per annum. It is not in dispute that

the Scheme of Arrangement approved by the

learned Company Judge between Pharmaceutical

Products of India Ltd. and its unsecured creditors

and Wanbury does not affect the rights of the

appellant as the appellant, though an unsecured

creditor, is not specified in Schedule-I, appended

to the Scheme. In this backdrop, the impugned

order cannot be faulted. However, it is clarified

that whatever objections the appellant may have

against the revival scheme pending before the

BIFR, pursuant to the order dated 1.6.2006 passed

by the AAIFR, they may place their objections

before the BIFR and obviously upon such

objections being placed the BIFR shall consider

the revival scheme of the respondent-Company on

is own merits, keeping in view all relevant fact and

circumstances, including the objections of the

appellant.”

7

Subsequent Events

11.We may also take note of some subsequent events. In view of the

order of AAIFR dated 1

st

June, 2006, BIFR issued notice on 1

st

February,

2007 to consider the Scheme-cum-merger with M/s. Wanbury Ltd.

propounded by the respondent company returnable on 29

th

March, 2007. On

the said date, all the interested parties including the appellant were heard.

By an order dated 1

st

May, 2007, BIFR is said to have sanctioned the

Scheme-cum-merger of M/s. Wanbury Ltd. with the respondent.

12.We may also place on record that inter alia on the premise that the

said Scheme of merger was approved in gross violation of this Court’s order

dated 15

th

December, 2006, a contempt petition was filed. We are not

concerned with the said Contempt Petition herein.

Contentions

13.Mr. R.F. Nariman, learned Senior Counsel appearing on behalf of the

appellant, in support of this appeal would submit :-

8

1.SICA being a special statute, the provision thereof shall prevail over

the provisions of the 1956 Act.

2.The High Court committed a manifest error in entertaining the

respondent’s application for merger under Sections 391 to 394 of the

Act, although the matter was pending before the AAIFR.

3.The High Court failed to notice the binding precedent of this Court in

NGEF Ltd. vs. Chandra Developers (P) Ltd. : (2005) 8 SCC 219

wherein it has clearly been held that SICA will prevail over the 1956

Act.

4.The Division Bench of the High Court has failed to consider that the

Company Judge had no jurisdiction to entertain any proceeding.

5.Section 26 of the SICA bars the jurisdiction of the Company Judge.

14.Mr. C.A. Sundaram, learned senior counsel appearing on behalf of the

respondent, on the other hand would urge :-

1.The operation of the order of BIFR having been stayed, the Company

Petition was maintainable at the instance of the respondent.

2.Section 19 of SICA will have no application as it speaks of financial

assistance by the persons specified therein.

9

3.Section 22 of SICA must be read in the context of Section 19 thereof.

4.Section 26 or any other provision of SICA do not oust the jurisdiction

of the Company Court.

5.SICA as interpreted by this Court in NGEF Ltd. (supra) would prevail

over 1956 Act only if the provisions of the latter are inconsistent with

the provisions of SICA and not otherwise.

6.The Scheme in question being subject to approval by BIFR and that

BIFR by a reason of its order dated 1

st

May, 2007 had granted

approval thereof, the legal requirements must be held to have been

complied with.

STATUTORY PROVISIONS

SICA

15.SICA was enacted to make, in the public interest, special provisions

with a view to securing the timely detection of sick and potentially sick

companies owning industrial undertakings, the speedy determination by a

Board of experts of the preventive, ameliorative, remedial and other

measures which need to be taken with respect to such companies and the

expeditious enforcement of the measures so determined and for matters

connected therewith or incidental thereto.

10

16.Section 15 of SICA provides for making reference by the Board of

Directors of the Company on becoming an industrial company, a sick

industrial company, to the Board for determination of the measures to be

adopted with respect to the company. Section 16 provides for making

inquiry into the working of sick industrial company by the Board after

receiving reference. Section 17 provides for powers of Board to make

suitable order on the completion of inquiry. Sub-section (3) thereof reads as

under:-

“ 17. Powers of Board to make suitable order on

the completion of inquiry.

(3) If the Board decides under sub-section (1) that

it is not practicable for a sick industrial company

to

make its net worth exceed the accumulated

losses within a reasonable time and that it is

necessary or expedient in the public interest to

adopt all or any of the measures specified in

section 18 in relation to the said company it may,

as soon as may be, by order in writing, direct any

operating agency specified in the order to prepare,

having regard to such guidelines as may be

specified in the order, a scheme providing for such

measures in relation to such company.”

11

17.Section 18 provides for preparation and sanction of Scheme. Sections

18(1)(c), 18(3) and 18(6A) read as under :-

”Section 18 - Preparation and sanction of Schemes

(1) Where an order is made under sub-section (3)

of section 17 in relation to any sick industrial

company, the operating agency specified in the

order shall prepare, as expeditiously as possible

and ordinarily within a period of ninety days from

the date of such order, a scheme with respect to

such company providing for any one or more of

the following measures, namely:--

(c) the amalgamation of--

(i) the sick industrial company with any other

company, or

(ii) any other company with the sick industrial

company;

(hereafter in this section, in the case of sub-clause

(i), the other company, and in the case of sub-

clause (ii), the sick industrial company, referred to

as "transferee company");

(3) (a) The Scheme prepared by the operating

agency shall be examined by the Board and a copy

of the scheme with modification, if any, made by

the Board shall be sent, in draft, to the sick

industrial company and the operating agency and

in the case of amalgamation, also to any other

company concerned, and the Board shall publish

or cause to be published the draft scheme in brief

12

in such daily newspapers as the Board may

consider necessary, for suggestions and objections,

if any, within such period as the Board may

specify.

(b) The Board may make such modifications, if

any, in the draft scheme as it may consider

necessary in the light of the suggestions and

objections received from the sick industrial

company and the operating agency and also from

the transferee industrial company and any other

company concerned in the amalgamation and from

any shareholder or any creditors or employees of

such companies:

Provided that where the scheme relates to

amalgamation the said scheme shall be laid before

the company other than the sick industrial

company in the general meeting for the approval

of the scheme by its shareholders and no such

scheme shall be proceeded with unless it has been

approved, with or without modification, by a

special resolution passed by the shareholders of

the company other than the sick industrial

company.

(6A) Where a sanctioned scheme provides for the

transfer of any property or liability of the sick

industrial company in favour of any other

company or person or where such scheme provides

for the transfer of any property or liability of any

other company or person in favour of the sick

industrial company, then, by virtue of, and to the

extent provided in, the scheme, on and from the

date of coming into operation of the sanctioned

scheme or any provision thereof, the property shall

be transferred to, and vest in, and the liability shall

become the liability of, such other company or

13

person or, as the case may be, the sick industrial

company.”

18.Section 19 provides for rehabilitation by giving financial assistance;

sub-sections (1), (2) and (4) whereof reads as under :-

”Section 19 - Rehabilitation by giving financial

assistance. -(1) Where the scheme relates to

preventive, ameliorative, remedial and other

measures with respect to any sick industrial

company, the scheme may provide for financial

assistance by way of loans, advances or guarantees

or reliefs or concessions or sacrifices from the

Central Government, a State Government, any

scheduled bank or other bank, a public financial

institution or State level institution or any

institution or other authority (any Government,

bank, institution or other authority required by a

scheme to provide for such financial assistance

being hereafter in this section referred to as the

person required by the scheme to provide financial

assistance) to the sick industrial company.

(2) Every scheme referred to in sub-section (1)

shall be circulated to every person required by the

scheme to provide financial assistance for his

consent within a period of sixty days from the date

of such circulation or within such further period,

not exceeding sixty days, as may be allowed by the

Board, and if no consent is received within such

period or further period, it shall be deemed that

consent has been given.

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(4) Where in respect of any scheme consent under

sub-section (2) is not given by any person required

by the scheme to provide financial assistance, the

Board may adopt such other measures, including

the winding up of the sick industrial company, as

it may deem fit.”

Sections 20, 26 and 32 of SICA read as under :-

“Section 20 - Winding up of sick industrial

company. - (1) Where the Board, after making

inquiry under section 16 and after consideration of

all the relevant facts and circumstances and after

giving an opportunity of being heard to all

concerned parties, is of opinion that the sick

industrial company is not likely to make its net

worth exceed the accumulated losses within a

reasonable time while meeting all its financial

obligations and that the company as a result

thereof is not likely to become viable in future and

that it is just and equitable that the company

should be wound up, it may record and forward its

opinion to the concerned High Court.

(2) The High Court shall, on the basis of the

opinion of the Board, order winding up of the sick

industrial company and may proceed and cause to

proceed with the winding up of the sick industrial

company in accordance with the provisions of the

Companies Act, 1956 (1 of 1956).

(3) For the purpose of winding up of the sick

industrial company, the High Court may appoint

any officer of the operating agency, if the

operating agency gives its consent, as the

liquidator of the sick industrial company and the

officer so appointed shall for the purposes of the

15

winding up of the sick industrial company be

deemed to be, and have all the powers of, the

official liquidator under the Companies Act, 1956

(1 of 1956).

(4) Notwithstanding anything contained in sub-

section (2) or sub-section (3), the Board may cause

to be sold the assets of the sick industrial company

in such manner as it may deem fit and forward the

sale proceeds to the High Court for orders for

distribution in accordance with the provisions of

section 529A, and other provisions of the

Companies Act, 1956 (1 of 1956).

Section 26 - Bar of jurisdiction. - No order passed

or proposal made under this Act shall be

appealable except as provided therein and no civil

court shall have jurisdiction in respect of any

matter which the Appellate Authority or the Board

is empowered by, or under, this Act to determine

and no injunction shall be granted by any court or

other authority in respect of any action taken or to

be taken in pursuance of any power conferred by

or under this Act.

Section 32 - Effect of the Act on other laws. - (1)

The provisions of this Act and of any rules or

schemes made thereunder shall have effect

notwithstanding anything inconsistent therewith

contained in any other law except the provisions

of the Foreign Exchange Regulation Act, 1973 (46

of 1973)and the Urban Land (Ceiling and

Regulation) Act, 1976 (33 of 1976) for the time

being in force or in the Memorandum or Articles

of Association of an industrial company or in any

other instrument having effect by virtue of any law

other than this Act.

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(2) Where there has been under any scheme under

this Act an amalgamation of a sick industrial

company with another company, the provisions of

section 72A of the Income-tax Act, 1961 (43 of

1961), shall, subject to the modifications that the

power of the Central Government under that

section may be exercised by the Board without the

Central Government under that section may be

exercised by the Board without any

recommendation by the specified authority

referred to in that section, apply in relation to such

amalgamation as they apply in relation to the

amalgamation of a company owning an industrial

undertaking with another company.”

The Companies Act, 1956

Section 391 of the Companies Act, 1956 reads as under :-

Section 391 - Power to compromise or make

arrangements with creditors and members .- (1)

Where a compromise or arrangement is proposed-

(a) between a company and its creditors or any

class of them; or

(b) between a company and its members or any

class of them,

the Tribunal may, on the application of the

company or of any creditor or member of the

company or, in the case of a company which is

being wound up, of the liquidator, order a meeting

of the creditors or class of creditors, or of the

members or class of members, as the case may be

to be called, held and conducted in such manner as

the Tribunal directs.

17

(2) If a majority in number representing three-

fourths in value of the creditors, or class of

creditors, or members, or class of members as the

case may be, present and voting either in person

or, where proxies are allowed under the rules

made under section 643, by proxy, at the meeting,

agree to any compromise or arrangement, the

compromise or arrangement shall, if sanctioned by

the Tribunal, be binding on all the creditors, all the

creditors of the class, all the members, or all the

members of the class, as the case may be, and also

on the company, or, in the case of a company

which is being wound up, on the liquidator and

contributories of the company:

Provided that no order sanctioning any

compromise or arrangement shall be made by the

Tribunal unless the Tribunal is satisfied that the

company or any other person by whom an

application has been made under sub-section (1)

has disclosed to the court, by affidavit or

otherwise, all material facts relating to the

company, such as the latest financial position of

the company, the latest auditor's report on the

accounts of the company, the pendency of any

investigation proceedings in relation to the

company under sections 235 to 351, and the like.

(3) An order made by the Tribunal under sub-

section (2) shall have no effect until a certified

copy of the order has been filed with the Registrar.

(4) A copy of every such order shall be annexed to

every copy of the memorandum of the company

issued after the certified copy of the order has

been filed as aforesaid, or in the case of a company

not having a memorandum, to every copy so

18

issued of the instrument constituting or defining

the constitution of the company.

(5) If default is made in complying with sub-

section (4), the company, and every officer of the

company who is in default, shall be punishable

with fine which may extend to one hundred rupees

for each copy in respect of which default is made.

(6) The Tribunal may, at any time after an

application has been made to it under this section

stay the commencement or continuation of any suit

or proceeding against the company on such terms

as the Tribunal thinks fit, until the application is

finally disposed of.”

Interpretation of the Statutory Provisions

19.It was conceded by Mr. Sundaram SICA being a special law vis.-a-vis

the 1956 Act, it shall prevail over the latter. The learned counsel, however,

qualifies his submission by contending that SICA only excludes the

provisions of the Companies Act when they are inconsistent with each

other.

19

The provisions of a special Act will override the provisions of a

general Act. A later of it will override an earlier Act. 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.

Wherever any inconstancy is seen in the provisions of the two Acts,

SICA would prevail. SICA furthermore is a complete code. It contains a

non-obstante clause in Section 32.

20.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 SICA.

We may, at this stage, notice the effect of SICA vis-à-vis the other

Acts, as has been noticed by this Court in some of its judgments

21.In NGEF Ltd. vs. Chandra Developers (P) Ltd. : (2005) 8 SCC 219, in

regard to the jurisdiction of the Company Court it was held :-

20

“20. Mr K.K. Venugopal, the learned Senior

Counsel, would submit that having regard to sub-

section (2) of Section 536 of the Companies Act,

the High Court has the jurisdiction to permit sale

of assets of the Company even before passing of

the winding-up order, in relation whereto Section

20(4) of SICA will have no application.

23. The provisions relating to winding up by the

courts occur in Chapter II of the Companies Act,

1956. Section 433 of the Act enumerates the

circumstances in which the company may be

wound up by the court including the inability on

the part of the company to pay its debts. Section

441 of the Act specifies as to when the proceeding

for winding up of a company by the court shall

commence at the time of the presentation of the

petition for the winding up.

In a case, however, where winding-up

proceedings are initiated in terms of

recommendations made by BIFR or AAIFR, as the

case may be, no such petition is required to be

presented. Section 443 lays down the power of a

court on hearing petition; clause (d) of sub-section

(1) whereof provides for a power to make an order

for winding up of the company with or without

costs or any other order that it thinks fit. Section

444 lays down the consequences of the winding-

up order. In terms of Section 446 of the Act, in the

event of passing of a winding-up order or

appointment of liquidator as Provisional

Liquidator, no suit or legal proceeding would

commence or if pending at the date of the

winding-up order, shall not be proceeded with

against the company except by leave of the court

and subject to such terms as the court may impose.

Sub-section (2) of Section 446 provides for a non

obstante clause, in terms whereof the Company

Court shall have jurisdiction to entertain or

dispose of any suit or proceedings specified

therein. Section 451 lays down general provisions

as to liquidators. Section 457 specifies the power

of the liquidator which is required to be exercised

21

with the sanction of the court. Sub-section (2) of

Section 536 reads as under:

“536. Avoidance of transfers, etc., after

commencement of winding up.—(1)*

* *

(2) In the case of a winding up by the

Tribunal, any disposition of the property

(including actionable claims) of the

company, and any transfer of shares in the

company or alteration in the status of its

members, made after the commencement of

the winding up, shall, unless the Tribunal

otherwise orders, be void.”

In regard to jurisdiction of the Company Court it was held :-

“39. The provisions of SICA contain non obstante

clauses. It is a special statute. It is a complete code

in itself. The jurisdiction of the Company Court in

such matters would arise only when BIFR or

AAAIFR, as the case may be, has exercised its

jurisdiction under Section 20 of SICA

recommending winding up of the Company upon

arriving at a finding that there does not exist any

chance of revival of the Company.”

It was furthermore held:

“40. Mr Venugopal has placed reliance upon a

decision of a learned Single Judge of the Karnataka High

Court in Karnataka State Industrial Investment and

Development Corpn. Ltd. v. Intermodel Transport

Technology Systems for the proposition that despite the

fact BIFR retains jurisdiction to get the assets of a sick

company sold in terms of sub-section (4) of Section 20

of SICA; still the leave of the Company Court, therefor

would be required. The said decision, however, has been

reversed by the Division Bench of the Karnataka High

Court in BPL Ltd. v. Intermodal Transport Technology

Systems (Karnataka) Ltd. holding that the Company

22

Court has no such jurisdiction. We generally accept the

views of the Division Bench.

41. It is difficult to accept the submission of the

learned counsel appearing on behalf of the respondents

that both the Company Court and BIFR exercise

concurrent jurisdiction. If such a construction is upheld,

there shall be chaos and confusion. A company declared

to be sick in terms of the provisions of SICA, continues

to be sick unless it is directed to be wound up. Till the

company remains a sick company having regard to the

provisions of sub-section (4) of Section 20, BIFR alone

shall have jurisdiction as regards sale of its assets till an

order of winding up is passed by a Company Court.

42. Apart from the fact that sub-section (4) of Section

20 contains a non obstante clause and, thus, it shall

prevail over the provisions contained in sub-section (2).

The said Act is also a latter statute.

43. The provisions of SICA would prevail over the

provisions of the Companies Act. Section 20 of SICA

relates to winding up of the sick industrial company.

Before BIFR or AAIFR, as the case may be, makes a

recommendation for winding up of the Company, an

enquiry is made in terms of Section 16 thereof wherefor

all relevant facts and circumstances are required to be

taken into consideration. Before an opinion is arrived at

in that behalf, the parties are given an opportunity of

hearing. The satisfaction arrived at by BIFR that the

Company is not likely to become viable in future and it

is just and equitable that the Company should be wound

up must be based on objective criteria. The High Court

indisputably on receipt of such recommendation of BIFR

would initiate a proceeding for winding up in terms of

Section 433 of the Companies Act. Sub-section (2) of

Section 536 ipso facto does not confer any jurisdiction

upon the Company Court to direct sale of the assets of

the sick company. It has to exercise its power thereunder

subject to the provisions of the special statute governing

the field. Despite the fact that the procedures laid down

under the Companies Act would be applicable therefor

but they must be read with sub-section (4) of Section 20

of SICA which contains a non obstante clause and in

terms thereof, BIFR is authorised to sell the assets of the

sick industrial company in such a manner as it may deem

fit. By reason of the said provision, BIFR is also

empowered to forward the sale proceeds to the High

23

Court for orders for distribution in accordance with

Section 529-A and other provisions of the Companies

Act which in no uncertain terms would mean that the

distribution of the sale proceeds would be for the

purpose of meeting the claims of the creditors in the

manner laid down therein. The intention of Parliament in

enacting the said provision becomes clear as in terms of

Section 22-A of SICA, BIFR is empowered to issue any

direction in the interest of the sick industrial company or

its creditors or shareholders and direct the sick industrial

company not to dispose of its assets except with its

assent. Section 32, as noticed hereinbefore, again

contains a non obstante clause. The scheme suggests that

BIFR retains control over the assets of the Company and

in terms of the aforementioned provisions may either

prevent any sale or permit any sale of the assets of the

sick industrial company. Such a power in BIFR remains

till a winding-up order is passed by the High Court and a

stage arrives for the High Court for issuing orders for

distribution of the sale proceeds.

44. SICA was furthermore enacted subsequent to the

provisions of the Companies Act. It is not, thus, possible

to accept the submission that the High Court exercises a

concurrent jurisdiction.”

It was ruled that the Company Court and the BIFR do not exercise

concurrent jurisdiction, holding:-

“45. It may be true that the High Court’s

jurisdiction is that of the Appellate Authority but

keeping in view the terminology contained in sub-

section (4) of Section 20 read with Section 32 of

the Act, it leaves no manner of doubt that the

provisions of SICA shall prevail over the

provisions of the Companies Act. For the

aforementioned purpose, it was not necessary for

Parliament to mention specifically the provisions

of sub-section (4) of Section 20 that the same shall

prevail over Section 536 of the Companies Act, as

was suggested by the learned counsel appearing

for the first respondent. The construction of the

24

provisions of both the Acts, as suggested by the

learned counsel, that both the provisions of sub-

section (4) of Section 20 and Section 536 should

be read conjointly so as to enable an applicant to

obtain a sanction of both BIFR and the Company

Court, thus, do not appeal to us.”

The Court noticed the non obstante clause contained in clause (4) of

Section 20 as also Section 32 of SICA to hold that the High Court does not

exercise concurrent jurisdiction with BIFR. The fact that SICA was enacted

in 1984 had also been taken into consideration.

The Court considered in details the exercise of the jurisdiction of the

Company Court vis-à-vis the BIFR to opine :-

“69. BIFR admittedly had the power to sell the

assets of the Company but the High Court until a

winding-up order is issued does not have the same.

BIFR in its order dated 24-8-2002 might have

made an observation to the effect that the

Company may approach the High Court in case it

intended to dispose of its property by private

negotiation but the same would not mean that

BIFR could delegate its power in favour of the

High Court. BIFR being a statutory authority, in

the absence of any provision empowering it to

delegate its power in favour of any other authority

had no jurisdiction to do so. “Delegatus non potest

delegare” is a well-known maxim which means

unless expressly authorised a delegatee cannot

sub-delegate its power. Moreover, the said

observations of BIFR would only mean that the

Company Court could exercise its power in

25

accordance with law and not dehors it. If the

Company Court had no jurisdiction to pass the

impugned order, it could not derive any

jurisdiction only because BIFR said so.”

(See also Morgan Securities and Credit Pvt. Ltd. v. Modi

Rubber Ltd. [AIR 2007 SC 683]

22.The principle laid down therein has been reiterated in Bombay

Dyeing & Manufacturing Co. Ltd. vs. Bombay Environmental Action

Group : (2006) 3 SCC 434 stating :

“13. The 1993 Act was enacted to provide for and

regulate the payment of interest on delayed

payments to small-scale and ancillary industrial

undertakings and for matters connected therewith.

14. The provisions of the 1993 Act, therefore, do

not envisage a situation where an industrial

company becomes sick and requires framing of a

scheme for its revival.

15. It is no doubt true that an award in relation to a

claim of a small-scale industry if made by the

Council would be governed by the provisions of

the Arbitration and Conciliation Act, 1996 (for

short “the 1996 Act”).”

SICA furthermore was enacted to secure the principles specified in

Article 39 of the Constitution of India. It seeks to give effect to the larger

public interest. It should be given primacy because of its higher public

purpose. Section 26 of SICA bars the jurisdiction of the Civil Courts.

26

What scheme should be prepared by the operating agency for revival

and rehabilitation of the sick industrial company is within the domain of

BIFR. Section 26 not only covers orders passed under SICA but also any

matter which BIFR is empowered to determine.

23.The jurisdiction of civil court is, thus, barred in respect of any matter

for which the appellate authority or the Board is empowered. The High

Court may not be a civil court but its jurisdiction in a case of this nature is

limited.

24.Our attention has been drawn to the decision of this Court in Jyoti

Bhushan Gupta v. Banaras Bank Ltd, [ (1962) Supp 1 SCR 73 ] where the

question which arose for consideration was as to whether Article 183 of the

Limitation Act shall have any application in regard to the applicability of

the provisions of the Limitation Act, it was stated :-

“By the Companies Act of 1913, the High Court

was invested with jurisdiction to order payment of

the amounts due by debtors of companies ordered

to be wound up. This jurisdiction may be invoked

as of right against all persons whose names are

placed on the list of contributories. The

jurisdiction is ordinary : it does not depend on any

extraordinary action on the part of the High Court.

27

The jurisdiction is also original in character

because the petition for exercise of the jurisdiction

is entertainable by the High Court as a court of

first instance and not in exercise of its appellate

jurisdiction. Again by s. 187 no special

jurisdiction is conferred. The High Court

adjudicates upon the liability of the debtor to pay

debts due by him to the Company : the jurisdiction

is therefore civil. Normally, a creditor has to file a

suit to enforce liability for payment of a debt due

to him from his debtor. The Legislature has by s.

187 of the Companies Act empowered the High

Court in a summary proceeding to determine the

liability and to pass an order for payment but on

that account the real character of the jurisdiction

exercised by the High Court is not altered. Nor is

there any substance in the contention that the

authority to order payment of a debt under s. 187

is merely a power of the High Court and not its

jurisdiction. By s. 3 read with s. 187 of the

Companies Act the High Court has jurisdiction to

direct payment of the amount due by a

contributory : and an order passed for payment

manifestly is an order passed in exercise of the

jurisdiction vested in the High Court by s. 3 read

with s. 187 of the Companies Act. “

It was furthermore observed:-

“The jurisdiction to deal with the claims of

companies ordered to be wound up is conferred by

the Indian Companies Act and to that extent the

Letters Patent are modified. There is, however, no

difference in the character of the original civil

jurisdiction which is conferred upon the High

Court by Letters Patent and the jurisdiction

conferred by special Acts. When in exercise of its

authority conferred by a special statute the High

28

Court in an application presented to it as a court of

first instance declares liability to pay a debt, the

jurisdiction exercised is original and civil and if

the exercise of that jurisdiction does not depend

upon any preliminary step invoking exercise of

discretion of the High Court, the jurisdiction is

ordinary.”

25.In Damji Valli Shah v. Life Insurance Corporation of India, [(1965)

2 SCR 665 ], the question which arose for consideration was as to whether a

similar provision made in the Life Insurance Corporation Act, 1956 shall

bar the jurisdiction of the Company Court in terms of Section 446 (1) of the

Companies Act. Referring to Section 41 of the Life Insurance Corporation

Act, 1956 it was stated that the Tribunal constituted under the LIC Act will

have exclusive jurisdiction. It was opined :-

“20. It is in view of the exclusive jurisdiction

which sub-s. (2) of s. 446 of the Companies Act

confers on the company Court to entertain or

dispose of any suit or proceeding by or against a

company or any claim made by or against it that

the restriction referred to in sub-s. (1) has been

imposed on the commencement of the proceedings

or proceeding with such proceedings against a

company after a winding-up order has been made.

In view of s. 41 of the LIC Act the company Court

has no jurisdiction to entertain and adjudicate

upon any matter which the Tribunal is empowered

to decide or determine under that Act. It is not

disputed that the Tribunal has jurisdiction under

the Act to entertain and decide matters raised in

29

the petition filed by the Corporation under s. 15 of

the LIC Act. It must follow that the consequential

provisions of sub-s. (1) of s. 446 of the Companies

Act will not operate on the proceedings which be

pending before the Tribunal or which may be

sought to be commenced before it.”

26.What in this case, however, has been contended is that BIFR had no

jurisdiction to make a scheme as envisaged under Section 391 of the Act.

Even otherwise, ‘civil court’ has a definite connotation. The jurisdiction of

the Company Court is now vested in the Tribunal. Therefore, it will be

difficult to hold, in view of a changed situation, that Section 26 ousts the

jurisdiction of the Company Court in totality. The decision, however, also

says that the special statute shall prevail over the general rule.

Although it may not be very relevant, we may notice that this Court in

Dwarka Prasad Agarwal v. Ramesh Chander Agarwal, [(2003) 6 SCC 220]

opined as under :-

“22. The dispute between the parties was

eminently a civil dispute and not a dispute under

the provisions of the Companies Act. Section 9 of

the Code of Civil Procedure confers jurisdiction

upon the civil courts to determine all disputes of

civil nature unless the same is barred under a

statute either expressly or by necessary

implication. Bar of jurisdiction of a civil court is

30

not to be readily inferred. A provision seeking to

bar jurisdiction of a civil court requires strict

interpretation. The court, it is well settled, would

normally lean in favour of construction, which

would uphold retention of jurisdiction of the civil

court. The burden of proof in this behalf shall be

on the party who asserts that the civil court’s

jurisdiction is ousted. (See Sahebgouda v.

Ogeppa) Even otherwise, the civil court’s

jurisdiction is not completely ousted under the

Companies Act, 1956.”

We are, therefore, of the opinion that the judgment of the High Court

cannot be sustained. We may furthermore notice that the decision of the

learned single judge has been overruled by a Division Bench of the Bombay

High Court in Ashok Organics Industries Ltd. v. Dena Bank (Company

Petition No. 108 of 2006, disposed of on 25.1.2008).

It is also not possible to harmonize the provisions of Sections 391 to

394 of the 1956 Act with the provisions of SICA.

For the views we have taken, it is not necessary to consider the other

contentions raised at the bar.

27.The question, however, is what relief should be granted in view of the

subsequent events. Various intervention applications have been filed. We

31

do not intend to make any observation in regard thereto. We are, however,

of the opinion that it is a fit case where we should exercise our jurisdiction

under Section 142 of the Constitution of India to meet the object for which

the Act has been enacted.

28.We have been taken through the Scheme. The Scheme provides for

not only entering into an arrangement as regards repayment of debts to

secured creditors and unsecured creditors but also provides for a merger,

subject of course, to an appropriate order being passed by BIFR. The

question is as to whether such a Scheme could be placed for approval before

BIFR. We are of the view that it could not be. Before BIFR could approve

a scheme, the same must be drawn in terms of the provisions of the Act and

not de hors the scheme. It is required to apply its own mind. The operating

agency is supposed to make a scheme. The operating agency before the

AAIFR took one stand; before us it has taken another. According to it, it

was not involved in the preparation of the Scheme. It had no occasion to

apply its own mind. Furthermore, after the learned Single Judge passed its

order, AAIFR disposed of the appeal only in terms of the order of the High

Court stating :-

32

“In view of IDBI’s recommendation of the revival

cum merger proposal submitted by PPIL, which is

in accordance with Bombay High Court’s order

dated 13.2.2006, we set aside the impugned order

dated 27.10.2004 and direct BIFR to consider the

scheme vetted by the OA within a period of three

months from the date of this order and take

necessary further steps for the revival of the

appellant company in accordance with law.”

29.The order of BIFR dated 1

st

May, 2007 also clearly show that it has

granted its approval in view of the observations made by the appellate

authority. It might have done so keeping in view the doctrine of judicial

discipline in mind.

30.The order of BIFR is not an outcome of any pre-application of mind.

There is no finding that it has taken into consideration all the relevant facts.

There is nothing to show that such an order is fair or reasonable or meets the

requirements of law.

31.We are, therefore, of the opinion that not only the judgment of the

High Court but also the orders of BIFR as also the AAIFR should be set

33

aside and the matter should be remitted to the BIFR so as to enable it to

proceed in accordance with the provisions of SICA afresh.

32.The appeal is allowed with the aforementioned observations and

directions. In the facts and circumstances of the case, there shall be no

order as to costs.

………………………….J.

[S.B. Sinha]

..…………………………J.

[ Lokeshwar Singh Panta]

…………………………..J.

[ Markandey Katju ]

New Delhi;

May 16, 2008

34