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2025 Supreme(SC) 1224

SUPREME COURT OF INDIA
B.R. GAVAI, CJI., AUGUSTINE GEORGE MASIH, J.
Nabha Power Limited – Appellant
Versus
Punjab State Power Corporation Limited And Others – Respondent
Civil Appeal No. 8694 of 2017, Civil Appeal No. 8739 of 2017
Decided on : 19-08-2025

Advocates appeared:
For the Appellant(s) :Mr. C.S. Vaidyanathan, Sr. Adv. Mr. A.N.S. Nadkarni, Sr. Adv. Mr. Mahesh Agarwal, Adv. Mr. Shri Venkatesh, Adv. Mr. Rohan Talwar, Adv. Mr. Shashwat Singh, Adv. Ms. Priya Dhankar, Adv. Mr. Naman Agarwal, Adv. Mr. E. C. Agrawala, AOR Mr. Vishrov Mukerjee, Adv. Mr. Pratyush Singh, Adv. M/S. Trilegal Advocates On Record, AOR
For the Respondent(s): Mr. K. V. Mohan, AOR Mr. M G Ramachandran, Sr. Adv. Ms. Poorva Saigal, Adv. Ms. Reeha Singh, Adv. Ms. Sunieta Ojha, AOR Ms. Gargi Kumar, Adv. Ms. Pragati Bhatia, Adv. Ms. Vasudha Priyansha, Adv.

Headnote:(A) Foreign Trade (Development & Regulation) Act, 1992 - Foreign Trade Policy 2009-2014 - Article 13 of Power Purchase Agreement - Deemed export benefits - The Appellant claimed eligibility for deemed export benefits under Para 8.3 of the FTP, which were ruled as inapplicable to in-situ thermal power plants; notifications issued by DGFT regarding deemed export benefits did not constitute a 'Change in Law' under the PPA - The appeals highlight key issues such as what constitutes a 'Change in Law', the nature of deemed export benefits, and eligibility criteria established within the FTP. (Paras 2, 25, 60, 74)

(B) The court found that notifications which affect the fiscal incentives do not along the line of legislation, meaning they do not qualify as 'Change in Law' events as noted under Article 13. (Paras 18, 19)

(C) The court established that the entire power plant cannot be considered as 'goods' eligible for deemed export benefits under the FTP, which applies only to tangible products. (Paras 61, 70)

Facts of the case:
The appellants, Nabha Power Limited and Talwandi Sabo Power Limited, disputed orders rejecting their claims for deemed export benefits post withdrawal of fiscal incentives by DGFT. Both parties sought restitution for supposed financial impacts due to changes in law impacting their bids under the Power Purchase Agreement with the Punjab State Power Corporation Limited.

Findings of Court:
The benefits under FTP are exclusively linked to 'goods', which excludes immovable plants like thermal power projects. Notices did not amend statutory obligations and thus did not constitute a 'Change in Law'.

Issues: 1) Are deemed export benefits under FTP legitimately available according to bid cut-off date? 2) Do notifications from DGFT constitute a 'Change in Law'? 3) Are appellants entitled to restitutionary relief?

Ratio Decidendi: The court ruled that the appeal was unfounded as deemed export benefits were not applicable; the notices did not constitute an actionable change in law, and restitution cannot be claimed given the lack of entitlement to benefits.

Result: Appeals dismissed.

Judgement Key Points

Key Points Making This Judgment Important

This Supreme Court judgment is significant for clarifying critical intersections between trade policy incentives, power purchase agreements (PPAs), and regulatory frameworks in India's energy sector. Below are the pivotal points, each tied to specific references from the document:

  1. Narrow Interpretation of "Change in Law" under PPAs: Defines "Change in Law" (Article 13 of PPA) as limited to enactments, amendments, or repeals of statutes/regulations by competent authorities, explicitly excluding administrative press releases, policy circulars, public notices, or clarificatory notifications from DGFT as qualifying events. This prevents fiscal incentive withdrawals from triggering contractual relief. (!) (!) (!) (!) (!) (!) (!) (!) (!)

  2. Inapplicability of Deemed Export Benefits to In-Situ Power Plants: Rules that thermal power plants constructed on-site do not qualify as "goods" under FTP Para 8.3, as "goods" must be movable, tangible items capable of supply/export; immovable integrated plants (e.g., boilers, turbines embedded in earth) fail the marketability test and cannot be "supplied" to themselves. (!) (!) (!) (!) (!) (!) (!) (!)

  3. Strict Prerequisites for Deemed Export Eligibility under FTP: Outlines five essential conditions—(i) exclusive to movable "goods"; (ii) manufactured in India with new character/use; (iii) distinct supply to projects; (iv) by main/sub-contractors; (v) via International Competitive Bidding (ICB) at IPP/EPC stage—which power projects like appellants failed to meet, emphasizing FTP's focus on export promotion of manufactured products, not infrastructure construction. (!) (!) (!) (!) (!) (!) (!) (!)

  4. Distinction Between Mega Power Policy (MPP) and FTP Benefits: Holds that opting for MPP benefits (customs/excise exemptions) precludes concurrent FTP claims; FTP benefits unavailable to non-MPPs post-cut-off and never intended for entire plants, only discrete movable components under ICB. (!) (!) (!) (!)

  5. No Restitutionary Relief Without Entitlement: Denies compensation under PPA Article 13 absent proof of legitimate benefit entitlement as of bid cut-off date (02.10.2009); procedural non-compliance (e.g., untimely notice, unsubstantiated quantification) and lack of DGFT endorsement further bar claims. (!) (!) (!) (!) (!)

  6. Procedural and Evidentiary Burdens in PPA Disputes: Requires developers to provide contemporaneous proof (e.g., DGFT endorsements) of benefit eligibility at bidding; hypothetical cost models or "legitimate expectations" from circulars insufficient; remands/forums must assess cut-off date position without jurisdictional overreach. (!) (!) (!) (!) (!)

  7. Implications for Tariff-Based Competitive Bidding: Reinforces that bids under Section 63 of Electricity Act must factor prevailing laws/policies without post-bid relief for assumed fiscal incentives; equates developer selection via competitive bidding with ICB only if explicitly for goods procurement. (!) (!) (!) (!)

These holdings provide binding precedent for power developers, procurers, regulators (e.g., APTEL, State Commissions), and DGFT, limiting "Change in Law" claims to formal legal changes and curbing expansive interpretations of trade incentives for immovable infrastructure. (!) (!) [judgement_subject][judgement_act_referred][Ratio Decidendi]


Table of Content
1. legitimacy of deemed export benefits under ftp (Para 1 , 2 , 3)
2. formation and ownership structure of npl and tspl (Para 4 , 5 , 6 , 7 , 8)
3. criteria for eligibility of deemed export benefits (Para 12 , 54 , 57)
4. legal challenges against dgft's policy changes (Para 13 , 15 , 18)
5. parties' contentions regarding ftp benefits and change in law (Para 19 , 20 , 21 , 23 , 24 , 28 , 29 , 30)
6. determining 'change in law' notification validity (Para 39 , 40 , 41)
7. definition of goods in the context of ftp (Para 60 , 61 , 62)
8. denial of restitutionary relief. (Para 74 , 78)

JUDGMENT :

AUGUSTINE GEORGE MASIH, J.

1. These two appeals pertain to the following common questions of law:

    (i) Whether deemed export benefits under Para 8.3 of Foreign Trade Policy 2009-2014 (hereinafter “FTP”) were legitimately available to the Appellants as of the bid cut-off date and would notifications by Directorate General of Foreign Trade (hereinafter, “DGFT”) amount to “Change in Law” under the Power Purchase Agreement dated 18.01.2010 (hereinafter, “PPA”);

    (ii) Whether the Press Release of Cabinet Decision pertaining to change of threshold of so-deemed export benefits would constitute a “Change in Law” under the PPA; and

    (iii) If so, whether Appellants are entitled to restitutionary relief in the form of compensation.

2. The Civil Appeal No. 8694 of 2017 as filed by the Nabha Power Limited (hereinafter, “NPL”) under Section 125 of the ELECTRICITY ACT , 2003 (hereinafter, “EA 2003”), arises from the Common Judgment dated 04.07.2017 (hereinafter, “Impugned Judgment”) in Appeal No. 47 of 2015 passed by the Appellate Tribunal for Electricity, New Delhi (hereinafter, “APTEL”) owing to rejection of the claim(s) moved by the NPL for relief under Article 13 of the PPA executed by it with the Punjab State Power Corporation Limited (hereinafter “PSPCL”), and primarily the challenge to the post-bid withdrawal of fiscal incentives which were allegedly available earlier under the FTP and their classification as a “Change in Law” event under the PPA.

3. Similarly, Civil Appeal No. 8739 of 2017, filed by the Talwandi Sabo Power Limited (hereinafter, “TSPL”) also arises from the same Impugned Judgment in Appeal No. 32 of 2015 by APTEL. Since both of the aforesaid appeals before the APTEL involved common issues, they were heard together. The prime grievance for both the Appellants therein was that the Punjab State Electricity Regulatory Commission at Chandigarh (hereinafter, “State Commission”) had, although vide separate orders, held them to be not eligible for the aforementioned benefits and liable to pass on the same to PSPCL, Respondent No. 01 herein.

4. Both, NPL and TSPL, are Special Purpose Vehicles (hereinafter, “SPVs”) which were formulated to develop the concerned power projects. This was done under Section 63 of the EA 2003 through Tariff-Based Competitive Bidding. PSPCL is one of the successors of the Punjab State Electricity Board (hereinafter, “PSEB”) and is a state-owned generating and distributing company in Punjab.

5. Since both these appeals arise out of the same Impugned Judgment with issues being common, the same are being dealt with together. We shall refer and adopt facts from the Civil Appeal No. 8694 of 2017 as preferred by NPL, treating it to be the main appeal.

6. The NPL was incorporated on 25.09.2007 by PSEB to develop a dual 700 Mega Watt coal thermal power project at Rajpura in Punjab (hereinafter, “Project”). While the PSEB was unbundled, 100 percent of the shares of the NPL were acquired by the Respondent No. 03, being L&T Power Development Limited (hereinafter, “L&T”) through the bidding process initiated on 10.06.2009, with final date of bid submission being 09.10.2009, and after an evaluation of the technical and financial bids by a committee chaired by the Principal Secretary, Department of Power, Government of Punjab. Thereby, NPL became a wholly owned subsidiary of L&T. Consequently, the PPA was executed between NPL and

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