{"id": "CCI_Noida_Software_Technology_Park_Ltd_vs_Star_India_PCO201808081816041524COM760948", "text": ["Noida Software Technology Park Limited (hereinafter, the Informant) filed the present information under Section 19(1)(a) of the Competition Act, 2002 (hereinafter, the Act) against Star India Pvt.", "Limited (hereinafter, OP 1), Sony Pictures Network India Pvt.", "Limited (hereinafter, OP 2), Indian Broadcasting Foundation (hereinafter, IBF OP 3) (OP-1, OP-2 and OP-3 hereinafter collectively referred to as OPs), alleging contravention of the provisions of Section 3(3), 3(4) and 4 of the Act.", "The Informant is a public limited company engaged in the business of satellite communication viz. broadcasting and data services.", "It holds a Head-End In The Sky (hereinafter, HITS) license issued by the Ministry of Information and Broadcasting (hereinafter, MIB), to establish, install, operate and maintain HITS project for digital cable services in India.", "Also, the Informant is a distributor of TV channels under the Interconnection Regulations (hereinafter, IR) framed by the Telecom Regulatory Authority of India (hereinafter, TRAI).", "As per the information OP-1, a wholly owned subsidiary of 21st Century Fox, is a broadcaster of TV channels as defined under Regulation 2(e) of the 2004 IRs.", "It generates around 20,000 hours of premium TV content every year, broadcasts 50 plus channels in 8 different languages, reaches 9 out of 10 cable and TV satellite homes in India and has significant presence in General Entertainment Channels (hereinafter, GECs) in Hindi as well as regional languages.", "Further, it has a leading sports network in the country with 10 channel properties and exclusive rights to most premium TV content.", "It is stated to be among the top three in Hindi, Bengali, Malayalam, Tamil, Telugu, Kannada and Marathi language broadcasters with an overall network share of 22-23 among Indian broadcasters.", "According to the information, its turnover has steadily increased from Rs. 5204 crore in 2013-14 to Rs. 10,800 crore in 2015-16.", "As regards OP-2, it is stated in the information that it is a subsidiary of Sony Pictures Entertainment and the owner operator of Sony Entertainment Television (a popular Hindi-language based general entertainment television channel in Indian Subcontinent).", "It has significant presence in movies, sports and English language general entertainment.", "It is the exclusive broadcaster of sporting events such as Indian Premier League, FIFA, etc.", "Moreover, its partnership with ESPN (a leading U.S. based global cable and satellite sports television channel) and acquisition of Ten Sports Network, has made it a market leader in sports broadcasting industry as well.", "According to the information, OP-3 is an apex organization of television broadcasters in India established in 1999 with the primary objective of promoting the interests of its members.", "Its members include major broadcasters (including OP-1 and OP-2) with more than 250 TV channels.", "In order to facilitate its members, OP-3 has set up various committees to protect and govern the interests of its members.", "All committees are chaired by the top management of the major broadcasters (including the OPs), who act in consultation with each other to enhance and protect interests of their key stakeholders.", "Apart from playing the role of industry association, OP-3 also holds 60 stake in Broadcast Audience Research Council of India (hereinafter, BARC), which reviews popularity of channels across a number of genres broadcasted by various broadcasters.", "It is stated in the Information that, as a distributor of television channel content, the Informant retransmits TV channel signals received from broadcasters such as OP- 1 and OP-2, through satellite to Independent Service Operators (hereinafter, ISOs) or Local Cable Operators (hereinafter, LCOs), who in turn, provide the signals to consumers via cable.", "The Informant is thus positioned similarly as MSOs except that unlike MSOs which retransmit signal to LCOs consumers via cable, HITS operator retransmits television content to its LCOs via satellite.", "Further, a HITS operator, under the extant regulatory framework can only retransmit the signals to an ISO LCO and not directly to consumers.", "In addition, it is stated by the Informant that HITS is a potentially new disruptive addressable distribution technology having significant advantages over the existing addressable distribution technologies i.e. Direct-to- Home (hereinafter, DTH) Operators and Multi-System Operators (hereinafter, MSO) as it can reach cable dark areas, which pan India MSO cannot.", "The Informant has pointed out that under the 2004 IRs of TRAI all similarly situated distributors are to be offered the same non-discriminatory prices by the broadcasters in accordance with the Reference Interconnect Offer (hereinafter, RIO).", "In this backdrop, the Informant has alleged that the broadcasters like OP-1 and OP-2, in concert with and facilitated by OP-3, are: a. adopting a manipulative and illegal interpretation of the regulatory provisions of the IRs as a result of which two parallel regimes of interconnect agreements are in existence-one, the RIO based regime in which all distributors on RIO based agreements would be offered the same but extremely high and onerous commercial terms of the RIOs and second, a separate set of interconnect agreements with the preferred distributors that would not be on the RIO model, but rather on a fixed fee and or Cost-Per- Subscriber (CPS) deal at highly attractive commercial terms, which OPs claim are outside the purview of regulatory scrutiny b. framing and pricing their TV channels in their RIOs in such a manner so as to make it commercially unviable for any distributor operating on the RIO based agreements to effectively compete in the market c. refusing to disclose the rates at which TV channels are offered to distributors who enter CPS fixed fee agreements and d. entering into side agreements for carriage and placement with vertically integrated as well as certain preferred distributors, so as to drastically bring down the costs of acquisition of their TV channels for such distributors.", "The Informant has averred that the above actions of OPs, apart from being in violation of the non-discriminatory mandate of the Regulatory framework, as held by the Honble Telecom Disputes Settlement and Appellate Tribunal (the TDSAT) in M section Noida Software Technology Private Limited v. M section Media Pro Pvt.", "Limited Ors.", "(Petition Number 295(C)/2014 decided on 07.12.2015) are also in violation of the provisions of the Act.", "The Informant has alleged that OPs by their concerted systematic tactics of price discrimination in favour of their preferred distributor(s) are engaging in practices that are in contravention of the provisions of Section 3(3), Section 3(4) and Section 4(2) of the Act.", "Allegations under Section 3(3) of the Act: Alleging contravention of the provisions of Section 3(3) of the Act, the Informant has inter alia stated that there is concerted action by broadcasters under the aegis of the OP-3 to determine the prices at which their channels are offered to distributors, and to determine the supply of their services in the market.", "In this regard, the Informant has pointed out that the nomenclature, mandate and membership of some of the committees set up by OP-3 in conjunction with the broadcasters shows that these committees are acting as a facilitator for the major broadcasters, including OP- 1 and OP-2, to come to a meeting of mind and understanding regarding their commercial arrangements at different levels of the supply chain within the broadcasting industry as well as to collusively boycott new entrants and potentially disruptive distribution technology such as that of Informant, under the garb of regulating the conduct and affairs of OP-3.", "In addition, the Informant has referred to similar comments given by the three OPs during the consultation process for the Draft Telecommunication (Broadcasting and Cable Services) Interconnection (Addressable Systems) Regulations, 2016, and has averred that the fact that each of the OPs have taken the same objections using same words is clearly indicative of collusion among the OPs.", "Citing the above facts and circumstances, the Informant has alleged that the OPs have tacitly come together to illegally boycott the Informant and control dictate the price at which TV channels are being sold and purchased in the broadcasting market with the intention to both maximize their advertising revenues and to benefit their vertically integrated and preferred distributors.", "It is thus submitted that the actions omissions of the OPs are in violation of Section 3(3) of the Act.", "Allegations under Section 3(4) of the Act: Further, the Informant has alleged contravention of Section 3(4)(d) read with Section 3(1) of the Act by OPs by way of both constructive refusal to deal as well as outright refusal to deal.", "Explaining the allegation, the Informant has submitted that considering the intellectual inputs, exclusive rights (sports), huge commercial cost involved in re- creating the products and consumer preferences built over a significant period of time, the products of OP-1 and OP-2 are unique in nature and cannot be substituted with any alternative product.", "Thus, for the Informant to survive in the broadcasting eco-system, the product of the OPs are essential irreplaceable inputs.", "It is alleged that the agreements amongst the OPs whereby they refuse to deal with the Informant at par with similarly situated distributors, has hindered entry of new entrants and foreclosed competition.", "It is alleged that OP-1 and OP-2 facilitated by OP-3, are resisting the entry of the Informant because they operate in the downstream market also, through vertically integrated entities that directly compete with the Informant.", "That apart, broadcasters have a vested interest in the manner the downstream market operates as majority of broadcasters revenue comes from advertising revenue, which is maximized by joining hands with such distributors who are willing to systematically violate various provisions of 2004 IRs which mandate pro-competitive conduct on part of the broadcaster and distributors.", "The Informant has alleged that by offering extremely onerous and unreasonable terms to the Informant vide their RIO, OP-1 by agreement with the Informant dated 01.10.2013 and 01.08.2014 and OP-2 by agreement with the Informant dated 31.10.2013 and 25.11.2014 indulged in constructive refusal to deal.", "Both OP-1 and OP-2 refused to offer rates, which they were offering to other similarly situated distributors who were directly competing with the Informant in the downstream market.", "Due to the aforesaid refusal of the OPs, the Informants product became hugely unviable to various LCOs who refused to do business with the Informant.", "The Informant has alleged that apart from constructive refusal to deal, there was also actual and outright refusal to deal by OP-1.", "It is averred that in 2014, when OP-1 published a new RIO on its website alongwith an incentive scheme offering a wide range of discounts to distributors based on various factors applicable to all digital addressable cable systems (which includes HITS operator), it excluded HITS operators.", "Further, OP-1 deliberately chose not to inform the Informant of their newly published RIO and when the Informant approached the OP-for the same, it was only met with silence from OP-1.", "However on 12.06.2015, OP-1 orally undertook to extend the incentive schemes to the Informant provided it cleared the outstanding dues of OP-1.", "Believing the representation to be true, the Informant vide an email dated 13.06.2015 offered to clear its dues in 12 instalments however OP-1 instead of making the incentive schemes available to the Informant issued disconnection notices to the Informant.", "The Informant has submitted that OP-1s refusal to extend the newly published RIO along with its incentive scheme that it offered to all other distributors in the downstream market amounts to an outright refusal to deal which contravenes the provisions of Section 3(4)(d) of the Act.", "Allegations under Section 4 of the Act: The Informant has also levelled allegations of abuse of dominance by OP-1 and OP-2 in the relevant market.", "Delineating the relevant market, the Informant has submitted that OP-1 and OP-2 are operating in two different markets pertaining to production and distribution of broadcasting services.", "According to the Informant, at the broadest level the relevant product market could be defined as the market for distribution of TV channel signals and based on the fact that OP-1 and OP-2 are both broadcasting companies the relevant market could be defined as the market for broadcasting.", "However, the Informant has suggested that given the unique structure of broadcasting sector it is important that considerations such as genre, consumer preferences, regulatory trade barriers etc.", "may also be taken into account while delineating the relevant product market.", "With respect to dominance, the Informant has submitted that OP-1 and OP-2 being major broadcasters in various regions across the country and owing to the premium TV content owned by them, are one of the most popular channels with the highest ratings in terms of viewers across various genres, which in itself is demonstrative of the market power possessed by them.", "Further, OP-1 and OP-2 individually enjoy dominant position in different relevant markets, categorized by the genre of TV content provided.", "This is more so in cases of premium TV content such as live sporting events e.g. ICC Cricket World Cup, Indian Premier League, FIFA World Cup, Wimbledon series etc.", "which are hugely popular in India and for which the OP-1 and OP-2 have exclusive broadcasting rights which makes them virtually indispensable in upstream market.", "The Informant has alleged that OP-1 and OP-2 have abused their dominant position in several relevant markets to systematically deny market access to the Informant, thereby restricting the provision of services and restricting the development of HITS technology to the prejudice of both the Informant and the end consumers.", "Accordingly, it is submitted that the OPs have through their practice of forcing the Informant and other similarly placed distributors to enter into unfair and discriminatory terms and conditions under the RIO have contravened the provisions of Section 4(2)(a)(i), 4(2)(b)(i), 4(2)(b)(ii) and 4(2)(c) of the Act.", "Based on the above facts and allegations, the Informant has, inter alia, prayed for initiation of an investigation against the OPs under Section 26(1) of the Act, and subject to the conclusion arrived at in the investigation (i) declare the practices of the OPs to be in contravention of provisions of Sections 3 and 4 of the Act, (ii) direct the modification of RIO agreements submitted by the OPs in terms of provisions of Section 27 of the Act, (iii) direct the OPs to furnish an undertaking for providing their services to all distributors on a transparent and non-discriminatory basis and to provide distributors with a non-confidential range of commercial terms provided to distributors on the basis of mutual negotiations, (iv) impose penalty on the OPs in terms of Section 27 of the Act and (v) pass any other direction that the Commission may deem appropriate.", "The Commission considered the material placed on record by the Informant and also heard the parties.", "The Informant was heard on 12.09.2017, OP-2 and OP-3 on 01.11.2017 and OP-1 on 27.02.2018.", "OP-1 in its submissions contended that the Informant by invoking the jurisdiction of the Commission is indulging in forum shopping.", "The Informant had approached the sectoral regulator TDSAT on a similar set of facts cause of action and the matter has already been adjudicated inter-se the parties by TDSAT vide Petition Number 166(C)/2013 and 295(C)/2014.", "Moreover, the essence of the Informants case before the Commission is regarding pricing and manner of offering, which lies in the domain of sectoral regulator TRAI and is, therefore, an occupied field.", "It is alleged that the instant information is an indirect attempt to bypass and circumvent the sectoral regulator and essentially challenge RIO rates before the Commission, which in fact falls within the domain of TRAI.", "Further, OP-1 has averred that the carriage and placement fee are also under the TRAIs purview.", "Under the extant TRAI regulations, if any operator demands carriage fees, it is open to the broadcaster to deny signals to the operator.", "It is only the quantum of carriage and placement fee that are under regulatory forbearance.", "From a commercial standpoint, these fees are a factor of subscriber base and market position.", "In the instant case, neither the Informants subscriber base nor its market position would make it commercially feasible for any broadcaster to pay carriage and placement fee to it.", "Moreover, for any issue relating to these fees the appropriate regulator ought to be TRAI.", "OP-1 has alleged that Informant as a retaliatory measure against Star has initiated this case as it has failed to settle the unpaid subscription which was admitted and adjudicated by TDSAT and subsequent disconnection of its channels in April 2016 due to non-payment of subscription fees.", "Also, the Informant has initiated Contempt proceedings before TDSAT challenging Star Indias RIO and (b) Criminal Complaint against senior employees of Star before CMM, Patiala House.", "OP-1 has averred that the ingredients of Section 3(3), 3(4) or 4 of the Act are not met by the Informant, in absence of which investigation is not required to be called for.", "With respect to the allegations under Section 3(3) of the Act, OP-1 has submitted that the Informant has falsely accused OP-1 of being in collusion with OP-2 and OP-3 and intentionally boycotting an innovator market disruptive technology.", "In fact, in 2012, OP-1 had offered a fair negotiated deal to the Informant at rates similar to those offered to new MSOs distributors, which was unacceptable to the Informant.", "Further, OP-1 has also rebutted the allegations raised by the Informant regarding collusion by way of formation of an association and its sub-committees.", "OP-1 has stated that competition law does not prohibit enterprises from forming trade associations or interacting with their competitors through trade associations.", "Further, it is common for trade associations to constitute sub-committees to effectively deal with subject matters that are of interest to its members.", "Thus, mere existence of an association cannot be considered as violation of competition law unless there is cogent evidence on record to prove existence of a cartel.", "In the instant case, the Informant has not presented a shred of evidence to prove the existence of cartel or collective boycott by the OPs.", "It is averred that an association and OPs simply taking a joint similar stance in relation to industry policy issues cannot be considered violation of competition law.", "Moreover, there is no scope of cartelisation as the broadcasting sector is heavily regulated and all the aspects of broadcasters business are regulated by TRAI and adjudicated by TDSAT.", "Further, OP-1 has denied that it decides on distribution and supply of television channels through OP-3.", "With respect to the allegations of constructive refusal to deal under Section 3(4) of the Act, OP-1 has submitted that the Informant misrepresented that Media pro Star India had offered TV channels to the Informant at exorbitant RIO rates which amounts to constructive refusal to supply.", "OP-1 has submitted that it did not refuse to deal but rather fairly negotiated with the Informant.", "OP-1 has submitted that it does not have the economic incentive or ability to foreclose the Informant or other DPOs.", "There is no incentive to foreclose as it is not vertically integrated.", "As per extant MIB guidelines, foreign broadcasters such as OP-1 are prohibited from owning or controlling distribution platforms.", "Also the broadcasting sector is highly regulated and TRAI has put in sufficient regulatory checks on broadcasters bargaining power.", "Must provide obligation by TRAI mandates the broadcasters to provide their channels to the distributors MSOs.", "However, there is no such equivalent obligation on distributor to carry the channels of the broadcaster.", "In addition, there is also no incentive to foreclose as advertising revenue constitutes a major portion of the broadcasters earnings.", "Hence, it is in the interest of the broadcaster that its content reaches as many eyeballs as possible, including new entrants, who may provide signals to subscribers beyond the reach of existing operators.", "With respect to the allegations of abuse of dominance, OP-1 has submitted that the relevant product market should be defined as the market for the supply of TV channels and not limited to genre-wise classification.", "However, if genre wise classification is considered appropriate, even then OP-1 is not dominant in the market as there are approx.", "866 channels in the market.", "In GEC genre, OP-1 has a meagre market share of 20 with other strong competitors like Zee, V18 and Sony.", "With respect to sports genre, Prasar Bharti exercises significant constraint on Star India.", "Moreover, the market share in television business is ephemeral as it fluctuates on a weekly monthly basis, which shows level of competition as well as substitutability between channels.", "Further, OP-1 has contended that even if it is considered dominant in any of the genres as alleged by the Informant, there is no abuse.", "It has neither unfairly discriminated between the Informant and other larger distributors such as Tata Sky, Hathway, Siticable, etc.", "nor has it constructively refused to deal by quoting exorbitant RIO rates (that are approved by TRAI).", "With respect to the allegation that OP-1 had offered differential pricing terms and conditions to the Informant vis--vis other larger distributors, OP-1 has submitted that it is a settled position in competition law that an enterprise, even if it is dominant, has the right to determine the terms and conditions of offering its product or services.", "Merely charging differential pricing to customers is not a violation of competition law.", "The Commission, in Case Number 63 of 2014 titled Saurabh Tripathy Vs.", "Great Eastern Energy Corporation Limited, has observed that:- lack of uniformity in itself cannot be a ground to hold discrimination unless the same is demonstrably shown to be a result of abuse treating similar set of customers differently.", "In the instant case, the Informant and other larger distributors are not similarly placed on the following criteria: (a) subscriber base (b) channel take-off (c) geographic reach (d) location of the channels, etc.", "Regarding the allegation of offering low discount price to the Informant, OP-1 has submitted that broadcasting is a two sided market i.e. subscription and advertisement, with a ratio of 30:70.", "A large subscriber base assures broadcaster of wider geographic reach and larger channel take-off, which in turn would increase broadcasters revenue hence, broadcaster is able to cross-subsidise and offer larger discount in the subscription rate.", "A small distributor like the Informant would not have the same reach or channel requirement and therefore there is no scope for broadcaster to earn revenue through advertisement revenue.", "So, the broadcaster would offer a lower discount to smaller player.", "This practice is not discriminatory as held by the Commission while assessing different discounts offered to the OEMs and distributors by Intel in Case Number 48 of 2011 titled ESYS Information Technologies Pvt.", "Ltd. v. Intel Corporation Ors., wherein it was observed that:- Any lower price given to the OEMs on account of volume discount or nature of their relationship is a reasonable business practice which cannot be said to be unfair and discriminatory.", "Further, as regards the allegation that RIO rates are exorbitant and, therefore, an offer to supply channels on RIO rates by OP-1 amounts to discrimination constructive refusal to deal, OP-1 has submitted that the RIO rates in the broadcasting sector is the regulated wholesale price, approved by TRAI.", "In fact, TRAI has frozen the pricing of TV channels (as of 2003) and the industry practice has been to sign a RIO based agreement, whenever negotiations fail.", "During the hearing on 01.11.2017, the learned counsel for OP-2 refuted the allegations of collusion, constructive refusal to deal and abuse of dominance.", "Regarding allegation of collusion, OP-2 submitted that concert cannot be deduced amongst OPs merely because of similar interpretation of law by them.", "On allegation of refusal to deal, OP-2 submitted that as it has no vertical integration, it has no incentive for constructive refusal to deal.", "Further, it has stated that although in mutually negotiated agreements the rates are different from the RIO rates on account of discount schemes (volume discounts), there was no occasion for OP-2 to refuse to deal with the Informant on that basis as it was never approached by the Informant for a mutually negotiated agreement.", "With respect to allegation of abuse of dominance, OP-2 submitted that dominance of OP-2 is not shown in the information.", "In terms of channels, out of around 877 channels, it has only 31 channels.", "Further, according to the market shares determined by Broadcast Audience Research Council of India (hereinafter, BARC) based on viewership, average viewership of its channels ranged between 10 to 11 percent as against viewership of around 20 percent of OP-1s channels.", "If seen in this context, no case of dominance is made out against OP-2.", "Also, no case of collective dominance can be made out under the Act.", "OP-2 has averred that irrespective of issue of dominance, the allegation of discrimination against it is unfounded.", "It has no issue with HITS technology and provision of its channels to the Informant would mean more viewership and more advertising revenue.", "However, in the instant case the problem is of default in payment by the Informant.", "OP-2 has submitted that until 31.03.2016, it had a RIO based agreement with the Informant, under which the Informant was in default of payment since April 2014.", "Accordingly, it stopped supplying its channels to the Informant.", "Even the must provide obligations of TRAI do not apply on the broadcaster if the distributor is in default.", "In addition, OP-2 has submitted that in view of the judgment of the Honble Bombay High Court in Vodafone India Limited Ors.", "v. The Competition Commission of India Ors.", " : 2017 144 SCL 580 (Bom.), the Commission ought not to have taken cognisance of the information.", "The learned counsel for OP-3 submitted during the hearing that the sphere of activity of broadcaster and the association is distinct.", "The association has no role to play in the fact whether a broadcaster enters into a contract with distributor operator on RIO based agreement or mutually negotiated agreement.", "IBF has no control over pricing of channels, deals and discounts offered by the broadcaster or the decision with whom to enter into contract.", "Its primary objective is to promote the interests of its members from the broadcasting industry.", "It plays a critical role in building consensus on major issues across the industry.", "This cannot be considered a violation of the competition law.", "The Commission has also observed this in Advertising Agencies Guild v. IBF its members (Case Number 35 of 2013).", "Thus, given the role of association, when it submits a response, its language and that of the broadcasters whose position it is broadcasting can be identical, as it circulates the same among its members who can then use the language as it is.", "The Commission has considered the background of the instant matter as well as the allegations of the Informant.", "It is evident that though the Informant has levelled the allegation of contravention of Section 3(3), 3(4) as well as Section 4 of the Act, its primary grievance is with respect to price discrimination by OP-1 and OP-2 in supply of television content to it in comparison to similarly placed MSOs distributors operators.", "It is observed that the various allegations of Informant under Section 3(4) regarding refusal to deal and under Section 4 of the Act regarding discriminatory pricing etc.", "find basis in the same issue i.e. price discrimination.", "Dealing first with the allegation under Section 3(3) of the Act, it is observed that the Informant has alleged concerted action by the OPs under the aegis of OP-3 to determine not only prices at which their channels are offered to distributors but also supply of its services in the market.", "A perusal of the information reveals that these are mere conjectures, unsubstantiated by credible evidence.", "Cartelisation cannot be inferred merely on the basis of formation of an association by members of an industry and nomenclatures of sub-committees of association.", "Also, an association favouring a stand taken by its members i.e. OP-1 and OP-2 in Petition Number 295(C) of 2014 before the TDSAT and consultation process of TRAI, cannot be considered anti- competitive if it is bona fide and not sham or frivolous.", "There is lack of evidence to this effect.", "Further, there is no specific evidence with respect to sharing of sensitive price and commercial information among the members, which could indicate meeting of minds.", "Accordingly, the Commission is of the view that no case of contravention of the provisions of Section 3(3) of the Act is made out from the information furnished by the Informant.", "Now, coming to the issue of price discrimination, the Commission notes that the Informant has alleged price discrimination by OP-1 and OP-2 under Section 3(4) as well as Section 4 of the Act.", "Since the Act does not envisage the concept of collective dominance, Section 4 the Act would not be applicable in the instant case.", "Thus, the only provision under which the allegations of the Informant can be examined is Section 3(4) of the Act.", "However, even for examining conduct under Section 3(4) of the Act, determination of market power of the firm alleged to be indulging in price discrimination has to be considered first, for which the market is required to be identified.", "Considering the facts, allegations and the business of the OPs in the instant case, the Commission finds that at broad level the market can be considered as the market for broadcasting of television channels in India.", "However, in this market narrower markets on the basis of genres and regional preferences also exist.", "It is observed that in the market for broadcasting of television channels in India, both OP-1 and OP-2 are leading broadcasters owning premium content and offering some of the most popular television channels with high ratings in terms of viewership across various genres.", "As such, no distributor can operate in the market of distribution of television channels without offering channels of OP-1 and OP-2.", "It is noted from information available in public domain1 that OP-1 owns more than 60 channels including Star Plus, one of Indias top Hindi General Entertainment Channels.", "Also other popular channels like Star Bharat, Star Gold, Channel V, Star World, Star Movies, Movies OK, Star Vijay, Asianet, Asianet Plus, Star Suvarna, Star Maa, Star Maa Gold etc. are offered by it.", "Its sports portfolio, Star Sports, comprises around 12 channels.", "It is noted that OP-1 has a major presence in broadcasting of sporting events, most notably after acquisition of IPL media rights for 2018-20222.", "OP-2 broadcasts around 30 channels including Sony Entertainment Television, also one of Indias leading Hindi General Entertainment television channels.", "It owns other popular channels like MAX, SAB, PIX, AXN, BBC Earth, etc.", "Its sports Network comprises around 11 sports entertainment channels like Sony ESPN, Sony TEN etc3.", "Given the bouquet of channels owned by OP-1 and OP-2, it is obvious that they enjoy significant market power.", "Both are present across genres and broadcast channels with highest viewership.", "OPs have argued that since they compete in a market of around 900 channels, they cannot be considered as having any market power.", "This argument may be attractive from the broadcasters perspective.", "However, if the same were to be examined from the lens of the distributor consumer, it would not hold good.", "This is so because if a distributor does not offer channels of OP-1 and OP-2, very few consumers would be willing to procure channels from it, making its business unviable.", "Overall, the market position of OP-1 and OP-2 as leading broadcasters with a portfolio of channels, which few others can match and which consumers of broadcasting services infallibly demand from the distributors, cannot be disputed.", "However, OPs have argued that their market shares do not show that they are in a dominant position or have any significant market power.", "In this regard, the Commission observes that market share is only one of the factors that indicates market power.", "Apart from market share, there are several other factors like size and resources of the enterprise, size and importance of the competitors, economic power of the enterprise including commercial advantages over competitors, dependence of consumers on the enterprise, etc.", "which need to be considered for the purpose.", "Such factors have to be considered in conjunction with market share of OP-1 and OP-2 as compared to other broadcasters to ascertain market power.", "On considering the entire portfolio of channels of OP-1 and OP-2, the Commission finds that out of the entire market for broadcasting of television channels in India, the two genres in which both OP-1 and OP-2 have a significant market power is the genre of Sports and Entertainment.", "In Sports, these two broadcasters between themselves have live broadcasting rights of almost all the major sporting events including Indian Premier League (IPL).", "In September 2017, Star acquired live global and digital broadcasting rights of IPL4.", "It now has television, digital, Indian and global media rights to the IPL for the next five seasons.", "Given that it already had television rights to all tournaments organized by the International Cricket Council, including the cricket world cup and all matches organised by the Board of Control for Cricket in India (BCCI), the acquisition of IPL rights gave OP-1 a virtual stranglehold over all cricket media rights in India.", "Apart from Cricket, OP-1 also owns flagship properties across other top sports namely Football, Kabaddi, Tennis and Badminton.", "Till 2017, OP-2 had held the media rights for IPL for past 10 years.", "Now, it has the media rights of seven international cricket boards including the top three cricket boards i.e. England and Wales, Australia and South Africa as well as those of Sri Lanka, Pakistan, West Indies and Zimbabwe.", "The media rights of England Cricket Board (ECB) would allow OP-2 to broadcast ECB matches in India, along with Bangladesh, Pakistan and Sri Lanka.", "These rights include both television and digital streaming of mens and womens international test matches, T20 Internationals and one-day internationals, played in England.", "Apart from Cricket, it also has rights of FIFA (Federation Internationale de Football Association), WWE (World Wrestling Entertainment), UFC (Ultimate Fighting Championship) and many other sporting properties that have allowed the network to position as a one-stop destination for sports.", "Further, it is observed from the decision of the Commission in Combination case C-2016/09/436 that in 2016 OP-2 had inter-alia acquired sports broadcasting business consisting of broadcast distribution and syndication of sports content on the Ten1 HD, Ten Golf HD, Ten Cricket (Middle East), Ten 1, Ten 2, Ten 34 and Ten Cricket (Caribbean) channels (collectively Ten), which reduced the number of competitors in the market for acquisition of rights for broadcasting of sports events in India from three i.e. OP-1, OP-2 and Ten to two i.e. OP-1 and OP-2.", "Further, it is noted that in terms of Gross Rating Points (for the period starting from week 41 of 2015 to week through week 34 of 2016), the combined market share of OP-2 and Ten was observed to be in the range of 40-50 percent, whereas market share of OP-1 was observed to be in the range of 40-45 percent.", "Thus, from the bare perusal of the said order of the Commission, it is evident that OP-1 and OP-2 are the only two significant players in the Sports genre.", "Another, genre in which both OP-1 and OP-2 have significant market presence is the Entertainment genre.", "In this genre, OP-1 broadcasts more than 48 channels in seven languages across various categories such as soaps, reality, news and films.", "It reaches more than 600 million viewers every week across India and 100 other countries.", "OP-1 has a leading presence in Hindi Entertainment as well as regional broadcasting.", "OP-2 is also owner of Sony Entertainment Television (SET) one of Indias leading entertainment channels.", "Since its inception in 1995, it has created popular shows that have managed to attract large audiences and offers a bouquet of shows that caters to all age groups.", "It reaches over 42 million households in India and 300 million viewers worldwide, which includes countries and regions such as the US, the UK, Africa, the Middle East, Europe, Canada, Australia, New Zealand, Singapore, Nepal, Bangladesh, Maldives and Malaysia.", "Further, from the information in public domain, it is observed that in terms of size and resources, OP-1 is a fully owned subsidiary of 21st Century Fox5.", "It also manages a portfolio of business ventures including DTH operator Tata Sky, cable system Hathaway, channel distributor Star Den, news channel operator MCCS, the film production and distribution business Fox STAR Studios India.", "Further, OP-2 is a subsidiary of Sony Corporation which owns and operates the Sony Entertainment network of television channels6.", "Sony Entertainment Television is also a part of the network of channels distributed by The One Alliance - a joint venture (JV) between Multi Screen Media Pvt.", "Limited and Discovery Communications India7.", "Thus, on considering the size and importance of OP-1 and OP-2 as compared to their competitors, the commercial advantage enjoyed by them over their competitors because of their portfolio of channels in sports and entertainment genre, dependence of consumers on the OP-1 and OP-2, etc.", "it is evident that OP-1 and OP-2 enjoy significant market power in the relevant market of Sports and Entertainment genre in the territory of India.", "Having found OP-1 and OP-2 in a position of significant market power, the Commission now proceeds to examine the allegations against them of price discrimination.", "It is observed that, as regards price discrimination, the Informant has submitted that since a major source of revenue for the broadcasters is the advertising revenue, they try to maximize the same by maximizing their subscriber reach.", "To this end, fee charged or the pricing of channels by the broadcasters varies from distributor to distributor.", "The manner in which price discrimination is implemented is that the broadcasters enter into an agreement with their favoured distributors whereby they pay them a carriage fee to carry their channels, as well as placement fee for placing their channels at certain prominent positions in the distributors bouquets.", "It is alleged that the agreement for carriage and placement fee are not within the regulatory scrutiny.", "These fees are never actually reflected in, or form a part of, the Interconnect Agreements that are required to be filed with TRAI.", "Thus, the broadcasters, under the garb of complying with the regulatory framework, are able to distort the real commercial arrangement with their favoured distributors.", "It is alleged that on many occasions, the carriage and placement fees paid by broadcasters completely offsets, or sometimes is even more than the license fees charged to certain distributors, which results in significant reduction in the net cost to the favoured distributor for carrying a particular broadcasters channels.", "Another manner in which price discrimination is alleged to be practiced by broadcasters is by resorting to bundling and making bouquets of channels, whereby they push unpopular channels with popular channels.", "Once the channels are sold in bouquet, the broadcasters channel (even if it is unpopular), is automatically switched on in the subscribers Set Top Box, thereby garnering deemed eyeballs for advertising revenue.", "It is alleged that the pricing of the channels in bouquets and pricing of the same channels on a-la-carte basis is done in such a manner that it renders a-la-carte choice illusory.", "Further, the individual broadcasters in their mutually negotiated non-RIO based agreements bundle or put in bouquets of their own channels to sell to certain distributors at prices that are far more attractive than a-la-carte RIO prices of same channels, which in turn, incentivises the distributor to price its channels at the retail level such that subscribers would be forced to opt for the bouquets as opposed to individual channels.", "This increases the subscriber fee for the broadcaster because once the distributor acquires a broadcasters channels in a bouquet it must pay per subscriber for the entire bouquet.", "The Commission notes that these issues were raised by the Informant before the Honble TDSAT alleging non-adherence to non-discriminatory mandate under the Interconnect Regulations of TRAI.", "Honble TDSAT in its judgment in Petition Number 295(C)/2015 had noted the irregularities in the conduct of broadcasters and to ensure compliance with the non-discriminatory mandate of the Regulatory Framework, ordered that all future Interconnect Agreements would have to be based on the said RIOs (therefore there could be no mutually negotiated agreements outside of the RIO framework).", "In addition, keeping in view the decision of the Honble TDSAT and taking into consideration the issues raised by the Informant and other such stakeholders, TRAI, after due consultation process, brought out The Telecommunication (Broadcasting and Cable) Services Interconnection (Addressable Systems) Regulations, 2017 to address the issues of discriminatory pricing.", "Further, TRAI also issued tariff orders taking into account components such as carriage and placement fee, pricing of a-la-carte channels vis- -vis bouquet rates, etc., which resulted in discriminatory pricing in the past.", "As stated earlier, the Informant has now invoked the jurisdiction of the Commission against OP-1 and OP-2, who have contended that since the distribution agreement with the Informant was entered on RIO terms, which are regulated by TRAI, the Informants allegation of price discrimination is misplaced as all distributors similarly placed to the Informant were being offered the same terms.", "In this regard, the Commission notes that firstly, neither OP-1 nor OP-2 has placed any material on record to establish their claim of similar treatment to similarly placed distributors and secondly, with respect to RIO terms being offered by broadcasters, it is noted that Honble TDSAT in order dated 07.12.2015 passed in Petition Number 295(C) of 2014 (NOIDA Software Technology Park Limited v. Media Pro Enterprise India Pvt.", "Limited Ors.) has inter alia observed that: the a la carte basis for the interconnect agreement is normally kept reserved by the broadcaster for the distributor with whom, for some reason it does not wish to enter into any commercial relationship but cannot outright deny the request for signals in view of the must provide mandate of the Regulations.", "Further, But in this country, unfortunately RIOs are framed seemingly in negation of all the attributes of a true RIO.", "The RIO is used by the broadcaster as a coercive tool and a threat to the seeker of TV channels and it undermines the essence of the Regulations, which is to provide healthy competition by providing level playing field.", "Thus, the above observations of Honble TDSAT refute the contention of OP-1 and OP-2 that if channels are offered at RIO rates then the allegation of refusal to deal is misplaced.", "The observations of Honble TDSAT indicate that offer of RIO terms by the broadcasters, could be a mechanism for refusal to deal.", "OP-1 and OP-2 have argued that the broadcasters have no incentive or ability for refusal to deal.", "However, the judgment of Honble TDSAT shows that the broadcasters, despite regulatory oversight, had the ability to discriminate amongst distributors and use RIO based agreements as a mechanism of refusal to deal.", "So much so, that TRAI was constrained to issue new regulations to ensure non- discrimination.", "Thus, the contention of Informant that agreement by OP-1 and OP-2 in RIO terms amounted to refusal to deal by them has some merit.", "Under the Competition Act, such agreements are prohibited under Section 3(4) of the Act.", "Prima facie insistence of the broadcasters to deal with the Informant only on RIO basis, which has been held to be discriminatory by Honble TDSAT indicates a constructive refusal to deal with the Informant by OP-1 and OP-2 in contravention of the provisions of Section 3(4) of the Act.", "Based on the foregoing, the Commission is of prima facie view that the conduct of OP-1 and OP-2 is in contravention of provisions of Section 3(4) of the Act On the issue of the jurisdiction, the Commission notes that OP-2 has pointed out that in view of the judgment of Honble High Court of Bombay in Vodafone India Limited Ors.", "v. The Competition Commission of India Ors.", "(supra), the Commission ought not to have taken cognisance of the information.", "In this regard, the Commission observes that while TRAI is the sectoral regulator for regulating tariff and ensuring non-discriminatory conduct by market participants in the telecom sector, the Competition Act also imposes a duty on the Commission to take cognisance of anti-competitive behavior.", "Under the Act, the powers of the Commission are in addition to and not in derogation of the TRAIs mandate to regulate the practices of the broadcasters in the sector.", "The scope of powers and functions of the Commission under the Act and that of TRAI under the TRAI Act are distinct in terms of process of investigation and inquiry as also the remedies that may arise from contravention of the provisions of the respective Acts.", "In its judgment, Honble High Court of Bombay had also observed as follows: The Competition Act and the TRAI Act are independent statutes.", "The statutory authorities under the respective Acts are to discharge their power and jurisdiction in the light of the object, for which they are established.", "There is no conflict of the jurisdiction to be exercised by them.", "However, the decision of the Commission was overturned particularly for the reason that the Honble High Court was of the view that the Competition Act itself was not sufficient to decide and deal with the issues, arising out of the provisions of the TRAI Act and the contract conditions under the Regulations.", "It was observed in the judgment that: The Commission ought not to have been opined, even prima facie, unless their respective rights and obligations under the Telecommunication laws are clarified and or decided by the Regulatory authorities Tribunal and the High Court.", "In the instant matter, the facts show that the matter has been decided finally under the Telecommunication laws.", "Both TDSAT and TRAI have recognised that the broadcasters had engaged in the practice of price discrimination refusal to deal.", "TRAI has brought out a regulation in 2017 to address the issues, which have been upheld by the Honble High Court of Madras on 23.05.2018.", "Thus, even in context of the judgment of High Court of Bombay, there remains nothing more to be decided by the Regulatory authorities Tribunal and the High Court under the Telecommunication laws in the matter which restrict the Commissions jurisdiction to look into the aspect of violation of provisions of the Act by OP-1 and OP-2 relating to a period prior to notification of the said 2017 regulation by TRAI.", "In view of the foregoing, the Director General (hereinafter, the DG) is directed to cause an investigation into the matter to ascertain whether the OP has indulged in refusal to deal by way of price discrimination with the Informant in contravention of the provisions of the Section 3(4) of the Act.", "Further, the DG is directed to complete the investigation within a period of 60 days from the receipt of this order and submit its report.", "It is made clear that, if during the course of the investigation, the DG comes across anti-competitive conduct of any other OP in addition to those mentioned in the information, the DG shall be at liberty to investigate the same.", "Also, the DG is directed to conduct a detailed investigation without restricting and confining to the duration mentioned in the information.", "The DG is further directed to look into the role of the persons officers who were in-charge of and responsible for the conduct of the businesses of the OP at the time of the alleged contravention.", "Nothing stated in this order shall tantamount to final expression of opinion on the merits of the case and the DG shall conduct the investigation without being swayed in any manner whatsoever by the observations made herein.", "The Secretary is directed to send a copy of this order along with the information and the documents received in relation to this matter to the Office of the DG.", "It is ordered accordingly.", "1 http: www.startv.com/ 2 https: www.thehindu.com business Industry star-india-bags-indian-cricket-home- series-media-rights article23445005.ece 3 https: www.sonypicturesnetworks.com overview 4 https: www.business-standard.com article companies star-india-set-to-pip-sony- for-india-cricket-broadcast-crown-1170904007401.html 5 https: www.ibef.org industry media-entertainment-india showcase star-india 6 https: www.sonypicturesnetworks.com overview 7 https: www.ibef.org industry media-entertainment-india showcase multi-screen- media-pvt-ltd"], "expert_1": {"primary": ["Fact", "Fact", "Fact", "Fact", "Fact", "Fact", "Fact", "Fact", "Fact", "Fact", "Fact", "Fact", "Fact", "Fact", "Fact", "Fact", "Fact", "Fact", "Fact", "Fact", "Fact", "Fact", "Fact", "Fact", "Fact", "ArgumentPetitioner", "ArgumentPetitioner", "None", "ArgumentPetitioner", "ArgumentPetitioner", "ArgumentPetitioner", "ArgumentPetitioner", 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{"id": "SC_Competition Commission of India vs Bharti Airtel Limited and Ors 05122018 SC(1)", "text": ["K. Sikri, J. Leave granted.", "Reliance Jio Infocomm Limited (hereinafter referred to as RJIL) has filed information Under Section 19(1) of the Competition Act, 2002 (hereinafter referred to as the Competition Act) before the Competition Commission of India (for short, CCI) alleging anticompetitive agreement cartel having been formed by three major telecom operators, namely, Bharti Airtel Limited, Vodafone India Limited and Idea Cellular Limited (Incumbent Dominant Operators) (hereinafter referred to as the IDOs).", "Similar Informations Under Section 19 of the Competition Act were also filed by one Mr. Ranjan Sardana, Chartered Accountant, and Mr. Justice Kantilal Ambalal Puj (Retd.).", "These were registered by the CCI as Case Numbers 80-81, 83 and 95 respectively.", "As per Section 26 of the Competition Act, on receipt of such an information, the CCI has to form an opinion as to whether there exists a prima facie case or not.", "If it is of the opinion that there exists a prima facie case, the CCI directs the Director General to cause an investigation to be made into the matter.", "Apart from the IDOs, certain allegations were also made against the Cellular Operators Association of India (for short, COAI).", "The CCI issued notice to these parties and after hearing the RJIL, the aforesaid cellular companies and COAI, it passed a common order dated April 21, 2017 in all these cases (by clubbing them together) holding a view that prima facie case exists and an investigation is warranted into the matter.", "It, accordingly, directed the Director General to cause investigation in the case.", "Introduction: Four writ petitions came to be filed by the Bharti Airtel Limited, Vodafone India Limited, Idea Cellular Limited and COAI respectively.", "The prayed for quashing of the aforesaid order and consequential action proceedings on the ground that the CCI did not have any jurisdiction to deal with such a matter.", "Show-cause notices were issued pursuant to which the CCI as well as RJIL filed their counter affidavits.", "The matter was heard and vide judgment dated September 21, 2017 the High Court has allowed these writ petitions and quashed set aside the order dated April 21, 2017 passed by the CCI and consequently notices issued by the Director General of the CCI have also been quashed.", "We may reproduce the conclusions and operative portion of the order passed by the Bombay High Court here itself, which are as under: Conclusions: All the Writ Petitions are maintainable and entertainable.", "This Court has territorial jurisdiction to deal and decide the challenges so raised against impugned order (majority decision) dated 21 April 2017, passed by the Competition Commission of India (CCI) under the provisions of Section 26(1) of the Competition Act, 2002 in case Numbers 81 of 2016, 83 of 2016 and 95 of 2016 and all the consequential actions notices of the Director General Under Section 41 of the Competition Act arising out of it.", "The telecommunication Sector Industry Market is governed, regulated, controlled and developed by the Authorities under the Telegraph Act, the Telecom Regulatory Authority of India Act (TRAI Act) and related Regulations, Rules, Circulars, including all government policies.", "All the parties, persons, stakeholders, service providers, consumers and enterprise are bound by the statutory agreements contracts, apart from related policy, usage, custom, practice so announced by the Government Authority, from time to time.", "The question of interpretation of clarification of any contract clauses, unified license, interconnection agreements, quality of service Regulations, rights and obligations of TSP between and related to the above provisions, are to be settled by the Authorities TDSAT and not by the Authorities under the Competition Act.", "The concepts of subscriber, test period, reasonable demand, test phase and commercial phase rights and obligations, reciprocal obligations of service providers or breaches of any contract and or practice, arising out of TRAI Act and the policy so declared, are the matters within the jurisdiction of the Authority TDSAT under the TRAI Act only.", "The Competition Act and the TRAI Act are independent statutes.", "The statutory authorities under the respective Acts are to discharge their power and jurisdiction in the light of the object, for which they are established.", "There is no conflict of the jurisdiction to be exercised by them.", "But the Competition Act itself is not sufficient to decide and deal with the issues, arising out of the provisions of the TRAI Act and the contract conditions, under the Regulations.", "The Competition Act governs the anti-competitive agreements and its effect - the issues about abuse of dominant position and combinations.", "It cannot be used and utilized to interpret the contract conditions policies of telecom Sector Industry Market, arising out of the Telegraph Act and the TRAI Act.", "The Authority under the Competition Act has no jurisdiction to decide and deal with the various statutory agreements, contracts, including the rival rights obligations, of its own.", "Every aspects of development of telecommunication market are to be regulated and controlled by the concerned Department Government, based upon the policy so declared from time to time, keeping in mind the need and the technology, under the TRAI Act.", "Impugned order dated 21 April 2017 passed by the Competition Commission of India (CCI) under the provisions of Section 26(1) of the Competition Act, 2002 and all the consequential actions notices of the Director General Under Section 41 of the Competition Act proceeded on wrong presumption of law and usurpation of jurisdiction, unless the contract agreements, terms and clauses and or the related issues are settled by the Authority under the TRAI Act, there is no question to initiating any proceedings under the Competition Act as contracts agreements go to the root of the alleged controversy, even under the Competition Act.", "The Authority, like the Commission and or Director General, has no power to deal and decide the stated breaches including of delay, denial, and congestion of POIs unless settled finally by the Authorities TDSAT under the TRAI Act.", "Therefore, there is no question to initiate any inquiry and investigations Under Section 26(1) of the Competition Act.", "It is without jurisdiction.", "Even at the time of passing of final order, the Commission and the Authority, will not be in a position to deal with the contractual terms and conditions and or any breaches, if any.", "The uncleared and vague information are not sufficient to initiate inquiry and or investigation under the Competition Act, unless the governing law and the policy of the concerned market has clearly defined the respective rights and obligations of the concerned parties persons.", "Impugned order dated 21 April 2017 and all the consequential actions notices of the Director General under the Competition Act, therefore, in the present facts and circumstances, are not mere administrative directions.", "Impugned order dated 21 April 2017 and all the consequential actions notices of the Director General under the Competition Act are, therefore, illegal, perverse and also in view of the fact that it takes into consideration irrelevant material and ignores the relevant material and the law.", "Every majority decision cannot be termed as cartelisation.", "Even ex-facie service providers and its Association COAI have not committed any breaches of any provisions of the Competition Act.", "Hence the following ORDER Impugned order dated 21 April 2017, passed by the Competition Commission of India (CCI) under the provisions of Section 26(1) of the Competition Act, 2002 in case Numbers 81 of 2016, 83 of 2016 and 95 of 2016 and all the consequential actions notices of the Director General Under Section 41 of the Competition Act, are liable to be quashed and set aside, in exercise of power Under Article 226 of the Constitution of India.", "Order accordingly.", "All the Writ Petitions are allowed.", "There shall be no order as to costs.", "In view of the above, nothing survives in Civil Application (Stamp) Number 17736 of 2017 in Writ Petition Number 7164 of 2017 and the same is also disposed of.", "No costs.", "Gist of the aforesaid order, as per the High Court, is that insofar as the telecom sector industry market is concerned, same is governed, regulated, controlled and developed by the authorities under the India Telegraph Act, 1885 (hereinafter referred to as the Telegraph Act), the Telecom Regulatory Authority of India Act, 1997 (for short, TRAI Act), and as well as the related Regulations, Rules, Circulars, etc.", "Therefore, the question of interpretation or clarification of any contract clauses, unified license, interconnection agreements, quality of service Regulations, rights and obligations of TSP between and related to the above provisions, are to be settled by the Authorities Telecom Disputes Settlement and Appellate Tribunal (TDSAT) and not by the Authorities under the Act.", "It has also held that the Competition Act and the TRAI Act are independent statutes and the statutory authorities under the respective Acts are to discharge their power and jurisdiction in the light of the objectives for which they are established.", "The Competition Act is itself not sufficient to decide and deal with the issues arising out of the provisions of the TRAI Act etc.", "Thus, the CCI has no jurisdiction to decide and deal with the various statutory agreements, contracts, including rival rights obligations, of its own.", "The issues arising out of contract agreements, terms and clauses and or the related issues are to be settled by the authority under the TRAI Act in the first instance and unless these issues are decided, there is no question of initiating any proceedings under the Act.", "In a nutshell, it is held that insofar as contracts, etc.", "which are regulated by the TRAI Act are concerned, in the first instance, it is the authority under the TRAI Act which has to decide these questions.", "Once there is a determination of the respective rights and obligations under these licenses by the authority under the TRAI Act, which provided an information to the effect that the particular act appears to be anticompetitive, only thereafter the CCI gets jurisdiction to go into the question of such anti-competitive practice.", "Primarily the message behind the decision of the High Court is that jurisdictional facts are to be decided by the authorities under the TRAI Act which has the exclusive jurisdiction to determine those issues as the TRAI is the statutory authority established for this very purpose, and unless there is a determination of these facts, the machinery under the Competition Act cannot be invoked.", "To put it otherwise, the judgment proceeds to decide that it was premature for the CCI to entertain the Information for want of determination of such issues that fall within the domain of the TRAI Act.", "It is obvious that the RJIL is not happy with the aforesaid outcome.", "Even the CCI feels aggrieved.", "CCI has impugned this decision by filing four special leave petitions, while the other one has been filed by the RJIL.", "The material facts which are absolutely essential to determine the controversy, eschewing the unnecessary details, may now be recapitulated: Factual Background: With the decision of the Government of India, more than 25 years ago, ushering into era of globalisation and liberalisation, lot of avenues opened up.", "It led to the privatisation of business in many sectors which were, hitherto, monopolistic domain of the Government.", "These included aviation, insurance, telecommunication etc.", "With the opening of the industrial and other activities in all spheres by placing it in the hands of private sector led to a significant economic development.", "The absolute control of the Government through public enterprise or otherwise, which had seen licence and quota raj, virtually withered away, thereby reverting back to laissez faire economy to a great extent, though not completely.", "It led to two significant developments: In the first instance, though the private sector was given full freedom to do the business without any shackles in the form of controls etc., it was also deemed necessary at the same time that in public interest, some of the aspects of the business need to be regulated, of course, not by the Government but by an independent regulatory authority.", "This necessity prompted the Government to come out with regulatory regime in different sectors.", "For example, in insurance sector, we have regulatory authority constituted under Insurance Regulatory and Development Authority Act, 1999 for industries generating electricity, there is an electricity regulatory authority constituted under the Electricity Act, 2003 and for telecom sector, with which we are concerned, the TRAI is constituted under the provisions of TRAI Act.", "Secondly, this requirement to do business thereby allowing free entry to private enterprise led to competition between different players in the private sector.", "Competition is perceived as a phenomena which is in best public interest in so many ways.", "Therefore, it becomes necessary to encourage competition.", "At the same time, tendency of the business enterprises to adopt practices which retard healthy competition needed to be curbed.", "There was a governing law in the field known as Monopolistic and Restrictive Trade Practice Act, 1969.", "However, it was felt that a new robust statutory regime is required to take care of the needs of the present day.", "This necessity prompted the Parliament to come out with a new Act on the subject and the Competition Act, 2002 was passed by the Parliament.", "Under this Act, the CCI is constituted as a statutory body which is to ensure healthy competition in markets thereby preventing the practice of having adverse effect on competition to promote and sustain the competition in markets to protect the interest of consumers and to ensure freedom of trade.", "In that sense, the CCI is also a regulator.", "But a unique feature of the CCI is that it is not sector based body but has the jurisdiction across which transcends sectoral boundaries, thereby covering all the industries, with focus on the aforesaid object and purpose behind the Competition Act, 2002.", "In the instant appeals, width and scope of the powers of the CCI under the Competition Act, 2002 pertaining to telecom sector i.e. in respect of the companies in telecom industry providing telecom services is to be defined vis-a-vis the scope of the powers of TRAI under the TRAI Act, 1997.", "It has arisen in these appeals, in the following background: As mentioned above, TRAI is the regulatory which regulates the functioning of the telecom service provider i.e. the telecom sector.", "Section 11 of the TRAI Act enumerates various functions which TRAI is supposed to perform under the Act.", "Section 13, likewise, empowers the TRAI to issue directions, from time to time, to the service provider.", "In exercise of powers Under Section 13 read with Section 11 of the TRAI Act, the TRAI issued directions dated June 07, 2005 to all the telecom service providers to provide interconnection within ninety days of the applicable payments made by the interconnection seeker.", "The purpose behind providing interconnection by one service provider to the other service provider is to ensure smooth communication by a subscriber of one service provider to the cell number which is provided by another service provider.", "In that sense, this direction facilitates smooth functioning of the cell phone network even when it is managed by different companies as it ensures interconnectivity i.e. connectivity from one service provider to other service provider.", "On October 21, 2013, RJIL was granted Unified License and Unified Access Service License Under Section 4 of the Telegraph Act by the Department of Telecom (DoT) for providing telecommunication services in all 22 circles licensed service areas in India.", "Soon thereafter, RJIL executed interconnection agreements (ICA) with existing telecom operators inter alia including, Bharti Airtel Limited and Bharti Hexagon Limited (hereinafter collectively referred to as the Airtel), Idea Cellular Limited (hereinafter referred to as the Idea) Vodafone India Limited Vodafone Mobile Services Limited (hereinafter collectively referred to as the Vodafone).", "RJIL commenced test trial of its services after intimation and approval of the DoT and TRAI.", "By its firm demand letter of June 21, 2016, RJIL vide separate letters requested IDOs to augment Point of Interconnection (POIs) for access, National Long Distance (NLD) and International Long Distance (ILD) services, as according to it, the capacity already provided to it was causing huge POI congestion, resulting in call failures on its network.", "According to RJIL, these companies intentionally ignored the aforesaid request.", "Accordingly, RJIL sent a letter dated July 14, 2016 to TRAI stating that the POIs provided by IDOs are substantially inadequate and leading to congestion call failures on its network in all circles.", "Hence, TRAI was requested to intervene and direct these telecom operators to augment the POI capacities as per the demands made by RJIL.", "TRAI vide separate letters dated July 19, 2014 requested inter alia the aforementioned telecom operators to augment POIs as per the RJILs request.", "Further, responses of the respective companies were also sought on the issues raised by RJIL, within seven days.", "Idea responded by sending letter dated July 26, 2016 to RJIL denying that there had been any delay in augmentation of POIs and further stated that it is willing to fully support RJIL and that it had instructed its circle teams to augment the POIs on the basis of traffic congestion as per the ICA.", "Likewise, Airtel also sent reply dated August 03, 2016 to TRAI, inter alia stating that augmentation of POIs shall be undertaken as per the terms and conditions of the ICA and on the basis of traffic trends post their commercial launch.", "RJIL was not satisfied with such responses.", "It sent another letter dated August 04, 2016 to TRAI reiterating its earlier request for augmentation of POIs by the subject telecom operators.", "In the meantime, even Cellular Operators Association of India (COAI) intervened by addressing communication dated August 08, 2016 to TRAI wherein it took a stand by stating that the RJIL was providing free service to millions of users under the guise of testing which led to choking of POIs.", "It was further suggested that due to the free service provided by RJIL, a substantial imbalance in voice traffic had occurred for which the existing operators were not adequately compensated under the Interconnection Usage Charges Regulations (IUC) in place.", "There was further exchange of correspondence between the parties and even by the parties to the TRAI which shows that the parties stuck to their respective positions and it may not be necessary to refer to those communications in detail.", "Suffice it is to mention that RJIL fixed September 05, 2016 as the launch date, which fact was informed to other service providers as well who were also told that the subscriber base was expected to substantially and swiftly increase resulting in even more POI congestion.", "On that basis, request was made for urgent POI augmentation vide letter dated September 02, 2016.", "The TRAI even facilitated a meeting between the representatives of RJIL and other service providers (Respondents herein) to sort out and resolve the differences in the interest of the consumers.", "At the same time, in the said meeting, the three telecom operators (Respondents herein) also raised a grievance that free calls being provided by RJIL has resulted in an unprecedented traffic congestion on their respective networks and the current IUC regime is inadequate to cover the cost of efficiently maintaining such high traffic.", "Thereafter, vide letter dated September 14, 2016, addressed by Airtel to RJIL, it stated that the POIs (also known as E1s) would be converted into 50:50 ratio to outgoing and incoming E1s.", "In other words, the E1s provided would be converted to only outgoing or only incoming i.e. one-way E1s.", "RJIL replied by stating that it was acceptable to them.", "Soon thereafter, i.e. in September 2016 itself, Mr. Rajan Sardana, a Chartered Accountant, filed information Under Section 19 of the Competition Act (registered as Case Number 81 of 2016) and similar application was filed by Justice K.A. Puj (retired) (registered as Case Number 83 of 2016).", "Then, it was followed by information Under Section 19 of the Competition Act by RJIL in November, 2016 (registered as Case Number 95 of 2016).", "Proceedings before TRAI: As the matter was with the TRAI as well, it issued show cause notices dated September 27, 2016 to IDOs and RJIL for violation of Standard of Quality of Service of Basic Telephone Service (Wireline) and Cellular Mobile Telephone Service Regulations, 2009 (hereinafter referred to as the QoS) and for provision of the License Agreements.", "Similar show cause notices were also sent to other telecom operators.", "On October 21, 2016, TRAI issued recommendations to DoT after finding that IDOs have violated conditions under the QoS, interconnection agreements and Unified License.", "The TRAI inter alia stated in its recommendation as under: 21.", "(vii) It is evident from the above clauses that the licensees are mandated to provide interconnection to all eligible telecom service provider.", "However, as mentioned in para 6 above, Airtel along with other service providers have jointly through their association (COAI), declined Point of Interconnection to RJIL which is willful violation of the above mentioned license conditions.", "COAIs letter dated 2nd September, 2016 which was confirmed by Airtel in the meeting held on 9th September, 2016 clearly indicates attempt by three service providers namely, Airtel, Vodafone India Limited and Idea Cellular Limited to stifle competition in the market and willfully violate the license conditions While the Authority has been taking necessary steps to ensure effective interconnection between Airtel and RJIL, it is evident from Para 21 that Airtel is in non-compliance of the terms and conditions of license and denial of interconnection to RJIL appears to be with ulterior motive to stifle competition and is anti-consumer.", "TRAI recommended that Rs. 50 crore per local service area (LSA) be imposed on all the above three telecom operators for failure to adhere to TRAI norms and Regulations.", "Similar recommendations were also issued to DoT against other telecom operators.", "Against the recommendations dated October 21, 2016 of TRAI, Vodafone filed a Writ Petition being Writ Petition (C) Number 11740 of 2016 before the High Court at Delhi.", "Meanwhile, on January 17, 2017, TRAI also recommended imposition of penalty of Rs. 1,90,000/- on Idea for its rejection of mobile number portability (MNP) requests to RJILs network.", "Against the aforesaid recommendation, Idea has preferred a Writ Petition being Writ Petition (C) Number 685 of 2017 before the High Court at Delhi.", "The DoT after examining the matter referred it back to TRAI for fresh consideration vide DoTs reference dated April 05, 2017 whereby its recommendations imposing penalty upon IDOs were sent back for reconsideration.", "The TRAI sent its response dated May 24, 2017 to the DoT, wherein it took a categorical stand that telecom operators have intentionally denied and delayed the augmentation of POIs to RJIL.", "Proceedings before CCI: The CCI took the cognizance of the three informations given to it Under Section 19 of the Competition Act which were registered as Case Numbers 81, 83 and 95 of 2016.", "It gave hearing to the Respondents service providers as well as COAI and passed order dated April 21, 2017 Under Section 26(1) of the Competition Act as per which it came to a prima facie conclusion that case for investigation was made out and directed the Director General to cause investigation in the case.", "This order was passed by majority of 3:2 as two members of CCI dissented from the said order.", "Operative portion of the majority order holds as under: The Commission notes that allegations of anticompetitive agreement as well as abuse of dominant position have been made for the same conduct of refusal to facilitate call termination services and denial of mobile number portability.", "As discussed earlier, the Commission is satisfied that there exist a prima facie contravention of Section 3(3)(b) of Act, as the ITOs appear to have entered into an agreement amongst themselves through the platform of COAI, to deny POIs to RJIL.", "Having been prima facie convinced that the impugned conduct is an outcome of the anti-competitive agreement amongst ITOs, Commission does not find it appropriate to consider the same impugned conduct as unilateral action by each of the ITOs.", "The Commission therefore at this stage does not find it necessary to deal with the allegations and submissions regarding abuse of dominance in contravention of the provisions of Section 4 of Act.", "In view of the foregoing, the Commission directs the DG to cause an investigation into the matter under the provisions of Section 26(1) of the Act.", "Considering the substantial similarity of allegations in all the informations, the Commission clubs them in terms of the proviso to Section 26(1) of the Act read with Regulation 27 of the Competition Commission of India (General) Regulations, 2009.", "The DO is directed to complete the investigation and submit investigation report within a period of 60 days from the date of receipt of this Order, if the DG finds contravention, he shall also investigate the role of the persons who at the time of such contravention were in-charge of and responsible for the conduct of the business of the contravening entity entities.", "During the course of investigation, if involvement of any other party is found, DG shall investigate the conduct of such other parties also who may have indulged in the said contravention.", "In case the DG finds the conduct of the Opposite Parties in violation of the Act, the DG shall also investigate the role of the persons who were responsible for the conduct of the Opposite Parties so as to proceed against them in accordance with Section 48 of the Act.", "The Commission makes it clear that nothing stated in this order shall tantamount to final expression of opinion on the merits of the case and DG shall conduct the investigation without being swayed in any manner whatsoever by the observations made herein.", "Likewise, two members who dissented inter alia held as follows: As stated above, from the various charts placed on record by the ITOs showing the number of POIs provided by them to RJIL, the respective learned senior Counsel for Ops have tried to show that the number of POIs provided to RJIL by 08.11.2016 i.e. within the first quarter itself, were much more than what was demanded.", "In fact, the charts filed by RJIL itself corroborate this fact.", "The charts show that even if some of the POIs provided (one-way POIs for connecting outgoing calls from ITOs to RJIL) are not taken into consideration, the number of POIs provided by OP-5 and OP-7 were much more than what was demanded by RJIL.", "Even in case of OP-2, the same were approximately 64 (NLD POIs) and 85.53 (Access POIs) as on 08.11.2016.", "However, as we have already observed above, we are not expected to go into the question of providing adequate number of POIs.", "Yet there is ample material on record to show that RJIL was more to be blamed for congestion in its traffic than the ITOs we are of the considered opinion that on the basis of material available with the Commission, it is difficult to say that there is a prima facie case made out against the Petitioner and others and accordingly, the instant cases ought to be closed Under Section 26(2) of the Act (hereafter Dissent Note).", "On June 08, 2017, the Director General issued a letter of investigation to the Appellant seeking call data records in respect of certain identified mobile numbers by June 19, 2017.", "On June 19, 2017, Respondent Number 2 issued a letter of investigation to the Appellant seeking detailed information documents to be furnished by June 30, 2017.", "Immediately thereafter, writ petitions were filed challenging the aforesaid order of the CCI as well as action of the Director General seeking information for holding inquiry.", "After preliminary hearing, the High Court passed interim orders dated June 30, 2017 on the basis of statement of the counsel for CCI that they shall not proceed with the investigation, which order continued till the disposal of the writ petitions.", "The High Court after hearing the matter finally allowed the writ petitions, as already mentioned.", "It is clear from the above that as per RJIL, the Respondent service providers, along with COAI, entered into an anti-competitive agreement formed a cartel and acted in an anti-competitive manner which is prohibited by the Act.", "On these allegations, it approached the CCI for initiating inquiry into this anti-competitive practices.", "Insofar as the nature of alleged anti-competitive agreement is concerned, the allegations of RJIL are the following: Delay in provisioning or denial in provisioning of POIs, also known as E1 in telecom parlance, to RJIL by IDOs during the testing phase and after commercial launch of RJIL services.", "POIs are the points where the networks of telecom operators connect.", "Without sufficient POIs it is not possible for subscribers of one service provider to make calls to subscribers of another service provider.", "It was also alleged, inter alia, that IDOs are denying Mobile Number Portability (MNP) requests of customers who wanted to switch to RJIL competing service.", "It was also alleged that COAI was acting at the behest of IDOs against the interest of a competing member, i.e. RJIL, and not for the common interest of the industry and consumers as a whole.", "Proceedings before the High Court: Against the order passed by the CCI directing investigation into the aforesaid allegations, in the writ petitions filed by the IDOs and also by COAI, challenge laid to the aforesaid order was premised on the ground that the CCI lacked jurisdiction to entertain such complaints information filed Under Section 19 of the Competition Act as such a matter falls within the exclusive jurisdiction of another regulatory authority, namely, TRAI.", "In nutshell, it was pleaded that the violation alleged by RJIL, namely, whether there was a delay or denial in provisioning POIs, comes within the domain of TRAI as it is the TRAI which has the exclusive jurisdiction to deal with such a matter under the TRAI Act and, in fact, the complaint was also made by TRAI as well which was seized of the matter.", "The plea of the Appellants, on the other hand, was that violation of telecom Regulations, etc.", "was undoubtedly a matter which could be looked into by the TRAI for which RJIL has approached the TRAI.", "However, the subject matter of inquiry before the CCI was entirely different, namely, formation of cartel and a concerted effort on the part of the service providers, in collusion with COAI, to curb the competition in the market and, thus, the CCI was competent and had requisite jurisdiction to look into this aspect.", "To put it otherwise, according to the Appellants, the CCI had decided to examine the facts purely from the stand point as to whether the alleged Act constituted anti-competitive practice on the part of the Respondents and, therefore, contravened the provisions contained in Section 3 or Section 4 of the Act.", "This aspect, they had argued, could not be gone into by the TRAI as the CCI was the only statutory authority constituted under the Act to examine such an issue.", "The Bombay High Court in the impugned judgment has, thus, inter alia, held as under: the Competition Commission of India (CCI) had no jurisdiction in view of the Telecom Regulatory Authority of India Act, 1997 and the authorities and Regulations made thereunder the CCI could exercise jurisdiction only after proceedings under the TRAI Act had concluded attained finality the order dated 21.04.2017 passed Under Section 26(1) of the Competition Act was not an administrative direction, but rather a quasi judicial one that finally decided the rights of parties and caused serious adverse consequences, because a detailed hearing had been given and many materials had been tendered in the courts of the hearings on the merits of the matter, there was no cartelisation as alleged and COAI was exonerated and the order of the CCI was perverse and liable to be interfered with under writ jurisdiction.", "Arguments: The Appellants: Mr. P.S. Narasimha, learned Additional Solicitor General, appeared on behalf of the CCI and submitted that the impugned judgment is contrary to the law.", "His attack was premised on three principal propositions, which are follows: Jurisdiction of the CCI: The CCI has jurisdiction in the present case and it need not wait till the conclusion of proceedings under the TRAI Act to conclude.", "Scope of Judicial Interference Under Article 226: The High Court erred in holding that the order passed Under Section 26(1) was an order resulting in serious adverse consequences merely because the CCI had granted a hearing.", "The order of CCI was not perverse and the High Court erred in giving findings on merits.", "The High Court erroneously exercised writ jurisdiction.", "With respect to the first proposition, his argument was that the High Court had failed to appreciate that issues before the CCI are altogether different than the issues before the TRAI and they necessarily be treated differently.", "He argued that the CCI and TRAI operate in entirely different fields, which is discernible from the Preambles of the respective legislations.", "The TRAI Act was supposed to enable it to regulate the telecommunication services, adjudicate dispute, dispose of appeals and protect the interests of service providers and consumers of the telecom sector, to promote and ensure orderly growth of the telecom sector.", "The CCI, on the other hand, is a body that has been established to prevent practices having an adverse effect on competition, to promote and sustain competition in markets, to protect the interests of consumers and to ensure freedom of trade carried on by other participants in markets, in India.", "Mr. Narasimha emphasised that the issue before the CCI was whether the opposite Parties Respondents, i.e. the IDOs, were acting in concert and colluding (forming a cartel) so as to block or hinder the entry of RJIL in the market in violation of Section 3(3) (b) of the Act.", "The key issue is whether there was an anticompetitive agreement between the IDOs, using the platform of COAI.", "The issue before the TRAI, on the other hand, is whether the delay denial of POIs has violated terms of the licence agreement and QoS Regulations.", "The learned ASG pointed out that all the opposite parties have argued that they were justified in declining POIs to RJIL.", "However, the question before the CCI is whether the conduct of the parties was unilateral or collective action based on an agreement? It is precisely this issue that requires investigation by the Director General.", "If the conduct of the Respondents in delaying denying POIs was unilateral (i.e. an independent decision made by each of them), then the conduct cannot be faulted Under Section 3 of the Act since Section 3 is premised on existence of an agreement as defined in Section 2(b).", "However, if the conduct of the Respondents was based on an agreement, it would become illegal Under Section 3(3)(b) of the Act because its intent and effect is to limit or control production, supply, markets, technical development, investment or provision of services.", "It was contended that the conduct may well be legal under the TRAI Act and Regulations or other laws.", "However, it is the collusive concerted nature of the action coupled with the effect that makes it illegal under the Competition Act.", "He adverted to the order dated April 21, 2017 of the CCI, while taking its prima facie view and submitted that the CCI has recognised the distinction between the issues before the TRAI and the issues arising under the Act, as follows: It is observed that telecom sector is regulated by TRAI as the sectoral regulator.", "On the allegation of insufficient POIs being provided to RJIL, the Commission notes from the information available on TRAIs website that, on 21st October 2016, TRAI had recommended, through three separate communications to the Department of Telecommunications, imposition of penalty of Rs. 50 crore per License Service Area (LSA) against Airtel, Vodafone and Idea, for violation of the provisions of License Agreements and the Standards of QoS of Basic Telephone Service (Wireline) and Cellular Mobile Telephone Service Regulations, 2009.", "Thus, TRAI as a sectoral regulator, has held the said conduct of ITOs in violation of relevant TRAI Regulations and recommended penal action against them.", "However, the recommendations of TRAI is in respect of violations of the provisions of License Agreements and the Standards of QoS of Basic Telephone Service (Wireline) and Cellular Mobile Telephone Service Regulations, 2009 by these OPs.", "Against this, mandate of the Commission Under Section 18 of the Act is to eliminate practices having adverse effect on competition, promote and sustain competition, protect the interests of consumers and ensure freedom of trade carried on by other participants, in markets in India.", "Accordingly, it becomes the duty and responsibility of the Commission to eliminate practices in the market that have an adverse effect on competition and promote and sustain competition so as to protect the interest of consumers and ensure freedom of trade.", "Further, as per Section 62 of the Act, provisions of the Act are in addition to and not in derogation of the provisions of any other law for the time being in force.", "Section 61 of the Act grants exclusive power to the Commission and the Competition Appellate Tribunal to exercise its jurisdiction in respect of any matter which the Act empowers the Commission or the Competition Appellate Tribunal to determine to the exclusion of civil courts.", "A careful reading of these provisions show that the Commission has the jurisdiction to inquire into the issues alleged in the present information insofar as the same may result in contravention of the provisions of the Act.", "It may be noted that the primary grievance of the Informants relates to cartelization by the Opposite Parties, amounting to violation of the provisions of Section 3 of the Act.", "In this regard, it must be noted that none of the areas covered Under Section 3 of the Act are covered by TRAI in its mandate as a sector regulator for TSPs.", "No doubt, TRAI has the responsibility obligation to determine whether Quality of Service Regulations and interconnection norms on the levels of congestion at the points of interconnection are complied with it not.", "But apart from that, none of the other issues as envisaged Under Section 3 of the Act are looked into by TRAI.", "Specifically, TRAI cannot arrive at a determination as to whether the ITOs have colluded and cartelized to deny POIs to the detriment of RJIL in violation of Section 3(3) read with Section 3(1) of the Act.", "The scope of the Section 3 allegation is not whether the ITOs have breached the terms of their respective License agreement or ICA, rather, the scope of the Section 3 allegations pertains to whether the ITOs have entered into an anti-competitive agreement to provide insufficient POIs or delay the provisions of POIs to RJIL.", "It is within the mandate of the Commission which can adjudicate on the issue of cartelization amongst enterprises associations and arrive at a finding on the alleged cartelization.", "The Commission accordingly holds that the issue of whether such conduct on the part of ITOs (including COAI) has resulted in any anti-competitive effect in the market in violation of the provisions of the Act can and needs to be examined by it.", "The Commission recognizes the role and importance of sectoral regulators and exercises its jurisdiction keeping in mind their role and responsibilities.", "The Commission is a market regulator and has the jurisdiction to look at those issues which affect competition in markets in India, including that of an alleged cartelization amongst enterprises associations.", "The nature of the proceedings before TRAI involving ITOs on the other hand different and related to whether interconnection norms and quality of service Regulations are complied with or whether the contractual terms of ICAs have been breached or met.", "Palpably, these issues are not relevant for determination in the current proceedings before the Commission.", "The informants have alleged that the conduct of ITOs amounts to a cartel in relation to denial of POIs to RJIL.", "The definition of cartel has been provided Under Section 2(c) of the Act which reads as follows: cartel includes an association of producers, sellers, distributors, traders or service providers who by agreement amongst themselves limit, control or attempt to control the production, distribution, sale or price of or, trade in goods or provision of services.", "Further, any alleged agreement amongst enterprises and an association of enterprises, engaged in identical or similar trade or provision of services is covered Under Section 3(3) of the act which states that: Any agreement entered into between enterprises or associations of enterprises or persons or associations of persons or between any person and enterprise or practice carried on, or decision taken by, any association of enterprises or association of persons, including cartels, engaged in identical or similar trade of goods or provision of services, which- (a) directly or indirectly determines purchase or sale prices (b) limits or controls production, supply, markets, technical development, investment or provision of services (c) (d) shall be presumed to have an appreciable adverse effect on competition.", "On the basis of the above, the Commission notes that in addition to ITOs, conduct of COAI also needs to be examined under the provisions of Section 3(3) of the Act.", "He submitted that it was the statutory duty of the CCI, enumerated in Section 18 of the Act, to eliminate anti-competitive practices and the focus of the CCI was confined to this Courts judgment in the case of Haridas Exports v. All India Float Glass Manufacturers Assn.", "and Ors.", " : (2002) 6 SCC 600 wherein it was held that where statutes operate in different fields and have different purposes, it cannot be said that there is implied repeal by one, of the other.", "In the said case, this Court was considering alleged conflict between the Monopolies Restrictive Trade Practices Act, 1969 and the Anti-Dumping Rules under the Customs Act Customs Tariff Act.", "It was held: The jurisdiction of the MRTP Commission, in our opinion, is not ousted by the anti-dumping provisions in the Customs Act.", "The two Acts operate in different fields and have different purposes.", "The Import Control Act and the Customs Tariff Act are concerned with import of goods into India and the duty which could be imposed on the imported items.", "Import may be allowed on the basis of an import licence or, depending upon the policy, import may be allowed under OGL - open general licence - where no specific licence for import is required.", "Whether to allow import or not and the terms on which an item may be imported is a matter of policy and regulated by law.", "xx xx xx The levy or non-levy of anti-dumping or other duty being a legislative act pursuant to the exercise of powers under the Customs Tariff Act can also not be a subject-matter of judicial review by the MRTP Commission.", "The two Acts substantially operate in different fields and the following table brings out some of the distinctions between the MRTP Act and the anti-dumping provisions: table omitted A perusal of the above chart indicates that the two statutes and regimes operate in different and distinct spheres and there is no conflict between the two regimes statutes.", "Hence, the question of implied repeal of the provisions of Section 33(1)(j) of the MRTP Act, 1969 on account of the provisions of Section 9-A of the Customs Tariff Act, 1975 does not arise.", "It is thus seen that the provisions relating to antidumping contained in the Customs Tariff Act do not in any way affect the power or jurisdiction of the MRTP Commission.", "The Import Control Act and the Customs Tariff Act on the one hand and the MRTP Act on the other operate in different independent fields and the authority under one has no jurisdiction over the other.", "In other words, their paths do not cross each other.", "While the provisions of the Anti-Dumping Act are concerned with the levy of anti-dumping duty, the MRTP Act in the present case would be concerned with the agreements between the parties which relate to the restrictive trade practices.", "Therefore, it would be incorrect to say that the incorporation of the anti-dumping provisions ousts the jurisdiction of the MRTP Commission to inquire and pass orders, inter alia, with regard to restrictive trade practice in India.", "The learned ASG pointed out that the allegation against the Respondents i.e. IDOs is that they have through an anticompetitive agreement cartel, limited the provision of services by delaying or denying POIs to RJIL, with a view to block its entry in the market.", "As per him, such an agreement would raise a presumption of appreciable adverse effect on competition.", "Explaining the scheme of the Act, Mr. Narasimha referred to the provisions of Section 3 which prohibits anti-competitive agreements of the nature mentioned therein.", "He also referred to the definitions of agreement, cartel, enterprise and service contained in Section 2 of the Act and submitted that the definition of agreement is not restricted to written agreements, but even extends to action in concert, which, according to him, is wide enough to allegations of RJIL, if proved correct, within the mischief of Section 3 of the Act.", "He also referred to Section 19(3) of the Act which lists certain factors to be considered in analysing adverse effect on competition and submitted that creation of barriers to new entrants in the market and foreclosure of competition by hindering entry into the market are to be perceived as having adverse effect on competition.", "He, thus, submitted that having regard to the aforesaid provisions, the CCI wanted to investigate the matter with focus on the aspect as to whether there was an agreement between the Respondent service providers and they acted in concert pursuant to the said agreement whether it amounted to anti-competitive act on the part of these Respondents and had adverse effect on the competition.", "In the process, the CCI was also supposed to examine as to whether the Respondents colluded with COAI and abused their dominant position.", "His further argument was that inquiry into these aspects was within the exclusive domain of the CCI as it is the CCI which is supposed to ensure that no such anti-competitive practices are adopted by anybody and if that has happened, the CCI is empowered to issue directions in terms of Section 27 of the Act and also impose penalties.", "It has power to impose even lesser penalties as provided in Section 46 of the Act.", "Mr. Narasimha also referred to Section 60 of the Act which provides for overriding effect for the Act and reads as under: Act to have overriding effect.", "- The provisions of this Act shall have effect notwithstanding anything inconsistent therewith contained in any other law for the time being in force.", "It was emphasised that the case of the CCI is not that the TRAI does not have power to exercise jurisdiction at all in the present factual matrix and there is no conflict of jurisdiction or legal regimes.", "Rather, both the TRAI and the CCI exercise their jurisdiction in their respective fields.", "Exercise of jurisdiction by the CCI to investigate an alleged cartel does not impinge upon TRAIs jurisdiction to regulate the industry in any way.", "Submission in this behalf was that the TRAI exercises its jurisdiction by ensuring compliance with the interconnect agreements, license conditions, interconnection Regulations, quality of service norms and Regulations etc.", "Based on past experience, the TRAI frames Regulations for the improvement of the telecom industry in the future.", "For instance, the June 07, 2005 direction of TRAI which provided for a 90-day period for interconnection has now been replaced by the interconnection Regulations of 2018, by which the time period for provision of POIs has been reduced to 30 days, because it was found that due to technical advancements, it was possible to give POIs in a much shorter time frame, and parties were using the 90-day period to delay the provision of POIs, as in the case of RJIL.", "However, the TRAI does not have the power to penalize for past conduct which was of anti-competitive nature.", "It was further submitted that while the competition law seeks to promote efficient allocation and utilization of resources by inter alia lowering the entry barriers in the market, the primary objective of the sectoral regulators like the TRAI is development of their respective sector.", "However, what is important to bear in mind is that the promotion of competition and prevention of competitive behaviour may not be high on the agenda of a sectoral regulator which makes it prone to regulatory capture.", "The position has been very succinctly captured by the Report of the Working Group on Competition Policy, Planning Commission of India, Government of India, February 2007 which states as follows: 7.2.3 The objective of a sectoral regulator is to provide good quality service at affordable rates, but the promotion of competition and prevention of anti-competitive behaviour may not be high on its agenda or the laws governing the regulator may be silent on this aspect.", "It is not uncommon for sectoral regulators to be more closely aligned with the interest of the firms being regulated, which is also known as regulatory capture.", "Besides, a sectoral regulator may not have an overall view of the economy as a whole and may tend to apply yardsticks which are different from the ones used by the other sectoral regulators.", "In other words, there is a possibility of the lack of consistency across sectors.", "On the other hand, CCI will be able to apply uniform competition principles across all sectors of economy.", "The National Competition Policy 2011 has also observed as following: 8.3 The objective of a sectoral regulator is to provide good quality service at affordable rates, but the promotion of competition and prevention of anti-competitive behaviour may not be high on its agenda or the laws governing the regulator may be silent on this aspect.", "Besides, a sectoral regulator may not have an overall view of the economy as a whole and may tend to apply yardsticks which are different from the ones used by the other sectoral regulators.", "In other words, there is a possibility of the lack of consistency across sectors as regards competition issues.", "On the other hand, the CCI, which is expected to have developed the core competence, expertise and capacity in competition related issues, will be able to apply uniform competition principles across all sectors of economy.", "Besides, enforcement and penalizing violations of Competition Act is the exclusive area of the CCI.", "Even otherwise, the general principle for economic efficiency would be, whoever can do a thing in best and most professional manner should do it.", "The learned ASG, on taking support from the above, submitted that the sectoral regulators, by contrast, will not be as experienced in conducting competition analysis as the competition authorities.", "Being susceptible to regulatory capture, the day-to-day interactions between industry officials and regulatory agency may lead to a commonality of interests that can interfere with the perspective necessary to evaluate competitive harms and to construct remedies that will protect competition for the benefit of the economy as a whole.", "While the sector specific regulators typically impose and monitor various behavioral conditions, the competition agencies are more likely to opt for structural remedies which would lead the sector to evolve to a point where sufficient new entry is induced thereby promoting genuine competition.", "According to him, keeping in view the aforesaid respective roles in mind, the Parliament in its wisdom and foresight has built in a mechanism within the Act to address apparent conflicts of jurisdiction.", "The comity between the sectoral regulator (TRAI) and the market regulator (CCI) is entirely addressed by a reading of Section 21 and Section 21A of the Act.", "In any case, Section 60 of the Act had an overriding effect.", "To support his argument, the learned ASG relied upon State (NCT of Delhi) v. Sanjay  : (2014) 9 SCC 772 wherein this Court dealt with the issue of whether a prescription of offence under the Mines Minerals Development Regulation (MMDR) Act would exclude the application of the Indian Penal Code.", "The Court held that due to the absence of a non-obstante clause, the application of the Indian Penal Code was not excluded.", "In the present case, the TRAI Act does not apply notwithstanding any other laws, and it does not contain an overriding effect provision containing a non-obstante clause.", "The relevant paragraphs of the judgment have been extracted below: Sub-section (1-A) of Section 4 of the MMDR Act puts a restriction in transporting and storing any mineral otherwise than in accordance with the provisions of the Act and the Rules made thereunder.", "In other words no person will do mining activity without a valid lease or licence.", "Section 21 is a penal provision according to which if a person contravenes the provisions of Sub-section (1-A) of Section 4, he shall be prosecuted and punished in the manner and procedure provided in the Act.", "Sub-section (6) has been inserted in Section 4 by amendment making the offence cognizable notwithstanding anything contained in the Code of Criminal Procedure, 1973.", "Section 22 of the Act puts a restriction on the court to take cognizance of any offence punishable under the Act or any Rule made thereunder except upon a complaint made by a person authorised in this behalf.", "It is very important to note that Section 21 does not begin with a non obstante clause.", "Instead of the words notwithstanding anything contained in any law for the time being in force no court shall take cognizance, the Section begins with the words no court shall take cognizance of any offence.", "It is well known that a non obstante Clause is a legislative device which is usually employed to give overriding effect to certain provisions over some contrary provisions that may be found either in the same enactment or some other enactment, that is to say, to avoid the operation and effect of all contrary provisions.", "He also premised his argument on the basis that the Act is a special statute in the field of telecommunications Regulation, including technical aspects connected thereto, and in case of conflict between two special legislations, the later enactment would prevail.", "In Solidaire India Limited v. Fairgrowth Financial Services Limited and Ors.", " : (2001) 3 SCC 71, this Court held as under: Coming to the second question, there is no doubt that the 1985 Act is a special Act.", "Section 32(1) of the said Act reads as follows: 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.", "The effect of this provision is that the said Act will have effect notwithstanding anything inconsistent therewith contained in any other law except to the provisions of the Foreign Exchange Regulation Act, 1973 and the Urban Land (Ceiling and Regulation) Act, 1976.", "A similar non obstante provision is contained in Section 13 of the Special Court Act which reads as follows: Act to have overriding effect.-The provisions of this Act shall have effect notwithstanding anything inconsistent therewith contained in any other law for the time being in force or in any instrument having effect by virtue of any law, other than this Act, or in any decree or order of any court, tribunal or other authority.", "It is clear that both these Acts are special Acts.", "This Court has laid down in no uncertain terms that in such an event it is the later Act which must prevail.", "The decisions cited in the above context are as follows: Maharashtra Tubes Limited v. State Industrial Investment Corporation of Maharashtra Limited  : (1993) 2 SCC 144 Sarwan Singh v. Kasturi Lal  : (1977) 1 SCC 750: (1977) 2 SCR 421 Allahabad Bank v. Canara Bank  : (2000) 4 SCC 406 and Ram Narain v. Simla Banking Industrial Company Limited  : AIR 1956 SC 614 : 1956 SCR 603.", "The learned ASG endeavoured to support his proposition by referring to the contrasting provision contained in Section 14 of the TRAI Act which provides for dispute resolution in respect of various categories of persons before the TDSAT, which specifically carves out an exception in respect of monopolistic trade practice, restrictive trade practice and unfair trade practice, which was subject to the jurisdiction of the Monopolies and Restrictive Trade Practices Commission (MRTP Commission).", "He submitted that this was another indicator in the TRAI Act itself from which it can be inferred that when it comes to anticompetitive practices, an embargo is put on the TRAI to deal with such practices, inasmuch as the Competition Act is enacted to repeal and replace the obsolete regime of the MRTP Act.", "In this behalf, he drew sustenance from Section 8 of the General Clauses Act to submit that the Competition Act could be read in place of MRTP Act while construing the provisions of Section 14 of the TRAI Act.", "His another submission, in this hue, was that a distinction needs to be drawn between facilitating competition (as provided in Section 11 of the TRAI Act) on the one hand and curbing and deterring anti-competitive conduct and practices on the other hand.", "His submission in this behalf was that the function of the TRAI Under Section 11(1)(a)(iv) was to facilitate competition which was purely recommendatory in nature and not part of regulatory function of the TRAI, as held in Union of India and Anr.", "v. Association of Unified Telecom Service Providers of India and Ors.", " : (2011) 10 SCC 543.", "He also argued that TRAI has no power to enforce compliance, pass orders, or give directions of the nature envisaged under the Act to curb anti-competitive conduct.", "The learned ASG also relied upon the judgment of the European Commission in Deutsche Telekom v. European Commission1 wherein it was held that it is only if the legislative framework eliminates the possibility of competition (for example, a statutory monopoly) that the jurisdiction of the Commission would be excluded.", "Following passage from the said judgment was specifically referred to: According to the case-law of the Court of Justice, it is only if anti-competitive conduct is required of undertakings by national legislation, or if the latter creates a legal framework which itself eliminates any possibility of competitive activity on their part, that Articles 81 EC and 82 EC do not apply.", "In such a situation, the restriction of competition is not attributable, as those provisions implicitly require, to the autonomous conduct of the understandings.", "Articles 81 EC and 82 EC may apply, however, if it is found that the national legislation leaves open the possibility of competition which may be prevented, restricted or distorted by the autonomous conduct of undertakings (Joined Cases C-359/95P and C-379/95P Commission and France v. Ladbroke Racing (1997) ECR I-6265, paragraphs 33 and 34 and the case-law cited).", "Mr. Narasimha also referred to another judgment of the General Court of the European Union in Telefonica SA v. European Commission (T-336/07) wherein it was held that the European Commission could intervene in the telecommunications market, even though the entry was regulated through a sectorial regulator.", "He pointed out that this decision of the General Court was upheld in appeal by the European Court of Justice vide its judgment dated July 10, 2014.", "Mr. Narasimha also contrasted the investigative regime under the two Acts, i.e. Section 12 of the TRAI Act vis-a-vis Section 41 read with Section 36(2) of the Competition Act and submitted that the Director General under the Competition Act is better equipped to deal with detection and investigation of anti-competitive agreements.", "Labelling as erroneous, the approach of the High Court that CCI should await the outcome of the proceedings before TRAI to attain finality, answer given by Mr. Narasimha was that this approach was erroneous for three reasons.", "First, the High Court has failed to appreciate the different fields domains in which the CCI and the TRAI operate.", "Secondly, the course of action proposed by the High Court would result in considerable delay defeating the CCIs investigation.", "Thirdly, the High Court has failed to notice the role played by Section 21A of the Act.", "He again emphasised that CCI is not inquiring into the adequacy of POIs provided to RJIL by the Respondents, or compliance with the QoS standards of TRAI and licence conditions, but was examining whether the conduct of the Respondents was unilateral or it was the result of anti-competitive agreement.", "Insofar as requirement of speedy investigation by the CCI is concerned, he submitted that such a requirement has already been acknowledged and mandated by this Court in Competition Commission of India v. Steel Authority of India Limited and Anr.", " : (2010) 10 SCC 744.", "Further, if at any stage, prior to or after taking a decision, the CCI is of the view that opinion of TRAI is required, it could always make reference Under Section 21A of the Competition Act.", "On the second proposition, namely, the High Court could not have entertained writ jurisdiction in respect of an order passed Under Section 26(1) of the Competition Act, Mr. Narasimha clarified that he was not taking the position that the High Court, in no circumstance situation, exercise its extraordinary jurisdiction under the said provision, in spite of an order passed Under Section 26 of the Competition Act.", "His submission, however, was that as per the judgment in Steel Authority of India Limited case, such jurisdiction would be very narrow and is to be exercised in exceptional cases.", "According to him, no such exceptional circumstance arises in the instant case as order in question was only a prima facie view of the CCI and such an order was administrative in nature.", "Learned ASG specifically referred to the following discussion in the case of Steel Authority of India Limited: In contradistinction, the direction Under Section 26(1) after formation of a prima facie opinion is a direction simpliciter to cause an investigation into the matter.", "Issuance of such a direction, at the face of it, is an administrative direction to one of its own wings departmentally and is without entering upon any adjudicatory process.", "It does not effectively determine any right or obligation of the parties to the lis.", "Closure of the case causes determination of rights and affects a party i.e. the informant resultantly, the said party has a right to appeal against such closure of case Under Section 26(2) of the Act.", "On the other hand, mere direction for investigation to one of the wings of the Commission is akin to a departmental proceeding which does not entail civil consequences for any person, particularly, in light of the strict confidentiality that is expected to be maintained by the Commission in terms of Section 57 of the Act and Regulation 35 of the Regulations.", "xx xx xx The above reasoning and the principles enunciated, which are consistent with the settled canons of law, we would adopt even in this case.", "In the backdrop of these determinants, we may refer to the provisions of the Act.", "Section 26, under its different Sub-sections, requires the Commission to issue various directions, take decisions and pass orders, some of which are even appealable before the Tribunal.", "Even if it is a direction under any of the provisions and not a decision, conclusion or order passed on merits by the Commission, it is expected that the same would be supported by some reasoning.", "At the stage of forming a prima facie view, as required Under Section 26(1) of the Act, the Commission may not really record detailed reasons, but must express its mind in no uncertain terms that it is of the view that prima facie case exists, requiring issuance of direction for investigation to the Director General.", "Such view should be recorded with reference to the information furnished to the Commission.", "Such opinion should be formed on the basis of the records, including the information furnished and reference made to the Commission under the various provisions of the Act, as aforereferred.", "However, other decisions and orders, which are not directions simpliciter and determining the rights of the parties, should be well reasoned analysing and deciding the rival contentions raised before the Commission by the parties.", "In other words, the Commission is expected to express prima facie view in terms of Section 26(1) of the Act, without entering into any adjudicatory or determinative process and by recording minimum reasons substantiating the formation of such opinion, while all its other orders and decisions should be well reasoned.", "He also drew the attention of the Court to paragraph 25 of the CCIs order dated April 21, 2017 as per which the Director General was asked to conduct the investigation without being swayed in any manner whatsoever by the observations made by the CCI in the said order.", "He submitted that in these circumstances the said order was merely administrative in nature and could not be labelled as quasi-judicial order.", "In the same vein his further submission was that the observations of the High Court that the CCI has decided several issues and elements with clear adverse consequences was clearly erroneous and contrary to the well-established principle of law.", "In support, he also referred to the judgments of the Bombay and the Allahabad High Courts.", "Dilating on his third proposition, namely, the CCI order was not perverse, he submitted that there was sufficient material before the CCI for formation of a prima facie opinion that the conduct of the Respondents was violative of Section 3(3)(b) of the Competition Act.", "He submitted that such material was taken into consideration and discussed in the order itself and he referred to certain paragraphs of the order dated April 21, 2017 in this behalf.", "In the process, he again emphasised that none of the observations made in the said order are conclusive findings in any way and not binding on the Director General and this was only the starting point, as held in the case of Excel Crop Care Limited.", "M section Harish Salve, Dr. A.M. Singhvi, Ramji Srinivasan and Amit Sibal, learned senior advocates, argued on behalf of RJIL.", "Their detailed submissions were almost on the lines on which Mr. Narasimha, learned ASG, had argued on behalf of the CCI.", "In the first place, it was emphasised that insofar as dragging of COAI into this investigation is concerned, it was sought to be justified by placing reliance on Section 3 of the Act which specifically recognises possible mischief by an association of persons or an association of enterprises.", "It was stressed that Section 3(3) recognises certain agreements as per se violations, and shall be presumed to have appreciable adverse effect on competition.", "Submission was that associations of enterprises, after the operation of the Act are now liable to be viewed with great suspicion in view of the fact that by its very nature an association of competing enterprises provides a convenient platform for such competitors to assemble together.", "The involvement of COAI was sought to be proved by arguing that the IDOs have not argued that COAI letters must be ignored since the decision to provide or not to provide POIs to its competitor was taken by each of them independently either Airtel by itself, or Vodafone by itself, or Idea by itself.", "But the facts of the case disclose active involvement by that common platform called COAI.", "As per the Reliance Jio, the COAI admittedly facilitated exchange of information between the three IDOs.", "It draws references in its response to private letters exchanged between Reliance Jio and each of the IDOs separately.", "The decisions of the COAI are not decisions of a majority comprising of a large and diverse pool of members that could suggest a democratic decision making.", "By its very constitution, the COAIs majority views were nothing but the common views of the three IDOs that controlled it.", "It was also argued that in the preliminary conference and in the High Court defence raised was that COAI was not a front for these three IDOs but was merely espousing general industry issues.", "It does not explain how it chanced upon private documents and correspondence exchanged bilaterally between RJIL with each of the IDOs separately.", "It does not explain how it voiced the common decisions on behalf of those three IDOs.", "The COAI was not the fourth voice but was the prohibited chorus of those three colluding competitors.", "Thus, no legitimacy can be attributed to actions of the COAI.", "Attention of the Court was drawn to the letter dated August 08, 2016 (before the announcement of launch of services by Reliance Jio dated September 01, 2016) and the letter dated September 02, 2016 (after the launch of Reliance Jio) which, according to Reliance Jio, expose the common collusive conduct of these competitors to first delay the launch and secondly to scuttle the launch.", "It was also contended that the concerted, collusive conspiracy by the three existing IDOs (having a collective market share of 65) to meet with each other under auspices of their association called Cellular Operators Association of India (COAI) and evolve a common strategy to respond to challenge posed by a new entrant RJIL, is by itself violative of Section 3 of the Act.", "The learned senior Counsel pointed out that the defence of the COAI is that it was merely lobbying the Government for enacting a change in law or Regulation to stop Reliance Jio from carrying out test on such a large scale by introducing limits on number of Test-subscribers.", "However, the letters of COAI revealed an active participation of taking sides of certain operators whose interest was to hinder, or at least slowdown the entry of the new operator.", "COAI announced unilateral decisions like virtual boycott (which is not the same as lobbying for change of Regulation).", "To support this argument, reference was made to the decisions of Supreme Court of United States in FTC v. Supreme Court Trial Lawyers Association  : 493 US 411 (1990) wherein it has observed that: no violation of the Act can be predicated upon mere attempts to influence the passage or enforcement of laws, even if the Defendants sole purpose is to impose a restraint upon the trade of their competitors.", "But in the Noerr case the alleged restraint of trade was the intended consequence of public action in this case the boycott was the mans by which Respondents sought to obtain favourable legislation.", "The restraint of trade that was implemented while the boycott lasted would have had precisely the same anticompetitive consequences during that period even if no legislation had been enacted.", "In Noerr, the desired legislation would have created the restraint on the truckers competition in this case the emergency legislative response to the boycott put an end to the restraint.", "On the submission that the dangers of a trade association being hijacked to further the cause of only a few competitors and yet attempt to give the entire exercise a veneer of respectability has been also commented upon in the recent decision of this Court in Competition Commission of India v. Coordination Committee of Artistes and Technicians of West Bengal Film and Television and Ors.", " : (2017) 5 SCC 17 wherein it has been observed that: In the instant case, admittedly the Coordination Committee, which may be a person as per the definition contained in Section 2(l) of the Act, is not undertaking any economic activity by itself.", "Therefore, if we were to look into the agreement of such a person i.e. Coordination Committee, it may not fall Under Section 3(1) of the Act as it is not in respect of any production, supply, distribution, storage, acquisition or control of goods or provision of services.", "The Coordination Committee, which as a trade union acting by itself, and without conjunction with any other, would not be treated as an enterprise or the kind of association of persons described in Section 3.", "A trade union acts as on behalf of its members in collective bargaining and is not engaged in economic activity.", "In such circumstances, had the Coordination Committee acted only as trade unionists, things would have been different.", "Then, perhaps, the view taken by the Tribunal could be sustained.", "However, what is lost in translation by the Tribunal i.e. in applying the aforesaid principle of the activity of the trade union, is a very pertinent and significant fact, which was taken note of by the DG as well as CCI in its majority opinion.", "It is this: the Coordination Committee (or for that matter even Eimpa) are, in fact, association of enterprises (constituent members) and these members are engaged in production, distribution and exhibition of films.", "Eimpa is an association of film producers, distributors and exhibitors, operating mainly in the State of West Bengal.", "Likewise, the Coordination Committee is the joint platform of Federation of Senior Technician and Workers of Eastern India and West Bengal Motion Pictures Artistes Forum.", "Both Eimpa as well as the Coordination Committee acted in a concerted and coordinated manner.", "They joined together in giving call of boycott of the competing members i.e. the informant in the instant case and, therefore, the matter cannot be viewed narrowly by treating Coordination Committee as a trade union, ignoring the fact that it is backing the cause of those which are enterprises.", "The constituent members of these bodies take decision relating to production or distribution or exhibition on behalf of the members who are engaged in the similar or identical business of production, distribution or exhibition of the films.", "Decision of these two bodies reflected collective intent of the members.", "When some of the members are found to be in the production, distribution or exhibition line, the matter could not have been brushed aside by merely giving it a cloak of trade unionism.", "For this reason, the argument predicated on the right of trade union Under Article 19 of the Constitution, as professed by the Coordination Committee, is also not available.", "Arguments: The Respondents: Mr. Darius J. Khambata, senior advocate, appeared on behalf of Idea Cellular Limited Mr. Gopal Jain and Mr. Navroz Seervai, senior advocates, appeared on behalf of Bharti Airtel Limited Mr. Ranjit Kumar, Mr. Arvind Datar and Mr. Sidharth Luthra, senior advocates, appeared on behalf of Vodafone India Limited Mr. P. Chidambaram, senior advocate, appeared on behalf of the COAI.", "TRAI had also intervened in the matter and supported the legal submission of the IDOs, namely, that TRAI had the exclusive jurisdiction to deal with the matter, i.e. there was a complete absence of jurisdiction in CCI to deal with the issue at hand.", "Instead of taking note of the submissions of these counsel separately, we are taking note of the submissions in a consolidated manner as that would avoid repetition.", "The submissions of the Respondents can be paraphrased as under: The TRAI Act, being a special law, ousts the jurisdiction of CCI to examine the telecom sector.", "In that sense, exclusive jurisdiction vests in TRAI to regulate the telecom sector, including competition related issues, thereby ousting the jurisdiction of the CCI altogether.", "Even if the CCI has the jurisdiction, TRAIs jurisdiction will prevail.", "In the alternative, the jurisdictional facts, in any case, had to be determined by the TRAI in the first place.", "Since there was absence of jurisdictional facts, the CCI could not have proceeded with the matter and ordered the investigation.", "Thus, the CCIs order for carry out investigation is premature.", "The impugned order passed by the CCI Under Section 26(1) of the Competition Act applies the prima facie test and consequences of such an order are grave.", "Such an order was quasi-judicial in nature and, therefore, amenable to judicial review Under Article 226 of the Constitution of India.", "Thus, the writ petitions filed by the IDOs challenging this order were maintainable.", "On merits, the prima facie order passed by the CCI was without considering the material submitted by the IDOs.", "In this behalf it was argued that the IDOs had provided sufficient POIs and given ample proof thereof, which was not taken into consideration by the CCI while passing the impugned order Under Section 26(1) of the Competition Act.", "This also becomes a valid ground to challenge the order by filing writ petition Under Article 226 of the Constitution of India.", "Insofar as the argument of the Respondents that the TRAI Act is a complete code and the jurisdiction of CCI is totally ousted, the argument proceeded on the following basis: The real issue which arises is comparison of two regimes - one regulated by TRAI under the Indian Telegraph Act, 1885, Wireless Telegraphy Act, 1933 and the TRAI Act, 1997 which together forms a comprehensive and complete code and the other being CCI under the Competition Act.", "The various provisions under these legislations seen with the terms of the License Agreement show that the issues arising out of interconnection between different operators shall be determined within the overall framework of the interconnection Regulations directions orders issued by TRAI from time to time.", "The Object and Reasons of the TRAI Act itself lays down that it is mandated to make arrangements for protection and promotion of consumer interest and ensuring fair competition and to ensure orderly and healthy growth of telecommunication infrastructure.", "Moreover, the competition in the telecom sector is of a different kind as it has to function under the constant monitoring and Regulation of TRAI.", "TRAI effectively plays the role of a watchdog of the sector as otherwise the entire sector would collapse if there is no interdependence between the telecom operators.", "Moreover, Under Section 11(1)(a)(iv) of the TRAI Act, the authority is required to take measures to facilitate competition in the market.", "CCI can ensure competition only in an unregulated sector and not in the likes of the telecom sector wherein even the tariffs are capped determined by TRAI.", "On the aforesaid basis, the submission was that: The TRAI Act is a complete code.", "Exclusive jurisdiction vests in TRAI to regulate the telecom sector including competition related issues.", "The TDSAT has the exclusive jurisdiction to examine the disputes between licensees including the one raised by RJIL before CCI.", "CCI has no jurisdiction to decide disputes pertaining to the telecom sector.", "In this hue it was submitted that the Statement of Objects and Reasons of the TRAI Act made it abundantly clear by satisfying that TRAI was supposed to make arrangements for protection and promotion of consumer interest and ensuring fair competition It was, thus, clear that even the competition aspects of the telecom sector were within the domain of TRAI.", "The Respondents also drew comparison of the Preamble of the Competition Act with that of the TRAI Act to point out that insofar as dealing with the issue of fair competition in telecom sector is concerned, it was overlapping to a great extent in the following manner: It was submitted that pursuant to Section 11(1)(a)(iv) read with Section 11(1)(b)(ii), (iii), (iv) of the TRAI Act (including directions and Regulations issued by TRAI), the TRAI has been statutorily mandated to perform functions on a variety of matters including measures aimed at facilitating competition and regulated interconnection between service providers.", "Reliance was also placed on Section 12 of the TRAI Act which empowers TRAI with vast powers to discharge its functions, including to call for information, conduct investigations and issue such necessary directions as it may deem necessary for the discharge of its functions.", "Moreover, TRAI has also been empowered to issue appropriate directions Under Section 12 and make Regulations Under Section 36 of the TRAI Act.", "Section 29 of the TRAI Act provides for penalties for contravention of directions of the TRAI.", "Further, Under Section 14A of the TRAI Act, it has been provided that any person may make an application before the TDSAT.", "With regard to the jurisdiction, Section 15 and 27 of the TRAI Act provide for explicit bar on jurisdiction of the civil courts to determine any matter with regard to which TDSAT or TRAI have been empowered by or under the TRAI Act.", "It was submitted that in the present case, at the time RJIL filed its Information before the CCI on November 08, 2016 as also when the prima facie order was passed on April 21, 2017, TRAI was seized of the matter pertaining to provisioning of POIs and even made certain recommendations to the DoT on October 21, 2016.", "Accordingly, TRAI had assumed jurisdiction and was exercising the same.", "Thus, the dispute was being dealt with and was addressed by the TRAI and even on this ground, the jurisdiction of the CCI stands ousted.", "The TDSAT has the exclusive jurisdiction to examine the disputes between licensees including the one raised by RJIL before CCI.", "This very submission on the exclusion of CCIs jurisdiction was sought to be projected from another angle.", "It was submitted that in the Information filed by RJIL before the CCI, Reliance Jio stressed: The dispute raised by RJIL before the CCI pertains to the specific performance of the Interconnect Agreement and the rights and liabilities arising therefrom The Interconnect Agreement is completely regulated by the TRAI inter alia Under Section 11(1)(b)(ii), (iii), (iv) of the TRAI Act read with the Quality of Service Regulations, 2009 issued thereunder.", "The argument was that the prayers sought by RJIL in the Information filed before the CCI clearly demonstrate that RJIL was seeking specific performance of the Interconnect Agreement.", "Hence, RJIL has dressed up what is essentially a contractual complaint into anti-competition clothing.", "In the present dispute, upon a meaningful reading of the Information it can clearly be seen that through clever drafting, RJIL has dressed up the allegations of delay denial of the POIs as alleged anti-competitive behaviour.", "In this behalf, reliance was placed on the decision of this Court in Begum Sabiha Sultan v. Nawab Mohd. Mansur Ali Khan and Ors.", " : (2007) 4 SCC 343, wherein it was held: There is no doubt that at the stage of consideration of the return of the plaint Under Order 7 Rule 10 of the Code, what is to be looked into is the plaint and the averments therein.", "At the same time, it is also necessary to read the plaint in a meaningful manner to find out the real intention behind the suit.", "In Moolji Jaitha and Company v. Khandesh Spg. and Wvg.", "Mills Company Limited  : AIR 1950 FC 83 the Federal Court observed that: (AIR p. 92, para 24) The nature of the suit and its purpose have to be determined by reading the plaint as a whole.", "It was further observed: (AIR p. 92, para 25) The inclusion or absence of a prayer is not decisive of the true nature of the suit, nor is the order in which the prayers are arrayed in the plaint.", "The substance or object of the suit has to be gathered from the averments made in the plaint and on which the reliefs asked in the prayers are based.", "It was further observed: (AIR p. 98, para 59) It must be borne in mind that the function of a pleading is only to state material facts and it is for the court to determine the legal result of those facts and to mould the relief in accordance with that result.", "In support of the submission that a special legislation i.e. the TRAI Act, will prevail over the provisions of the Competition Act, which according to the Respondents is general in nature, reliance has been placed on the decisions of this Court in State of Punjab v. Labour Court, Jullundur and Ors.", " : (1980) 1 SCC 4.", "In the said matter, the Court was inter alia seized of the issue whether the employee-Respondents were at liberty to seek the payment of gratuity by invoking the remedy available Under Section 33-C(2) of the Industrial Disputes Act, 1947 as opposed to the Payment of Gratuity Act, 1972.", "In deciding the said dispute, it was held that: It is apparent that the Payment of Gratuity Act enacts a complete code containing detailed provisions covering all the essential features of a scheme for payment of gratuity.", "It creates the right of payment of gratuity, indicates when the right will accrue, and lays down the principles for quantification of the gratuity.", "It provides further for recovery of the amount, and contains an especial provision that compound interest at nine per cent per annum will be payable on delayed payment.", "For the enforcement of its provisions, the Act provides for the appointment of a controlling authority, who is entrusted with the task of administering the Act.", "The fulfilment of the rights and obligations of the parties are made his responsibility, and he has been invested with an amplitude of power for the full discharge of that responsibility.", "Any error committed by him can be corrected in appeal by the appropriate Government or an Appellate Authority particularly constituted under the Act.", "Upon all these considerations, the conclusion is inescapable that Parliament intended that proceedings for payment of gratuity due under the Payment of Gratuity Act must be taken under that Act and not under any other.", "That being so, it must be held that the applications filed by the employee Respondents Under Section 33-C(2) of the Industrial Disputes Act did not lie, and the Labour Court had no jurisdiction to entertain and dispose of them.", "On that ground, this appeal must succeed.", "Applying the aforesaid tests to the present case, the submission of the Respondents is that: The subject area of competition law is dealt with by the Competition Act, 2002.", "The TRAI Act, 1997 is a complete code in itself and regulates the Telecom Sector.", "The Preamble, the Statement of Objects and Reasons and Section 11(1) of the TRAI Act provide the TRAI with the power to inter alia regulate competition in the telecom sector.", "Accordingly, being the special law regarding the telecom sector, as regards competition issues arising in the telecom sector, the TRAI Act would prevail over the Competition Act.", "Replying to the argument of the Appellants that the TRAI Act as well as the Competition Act are both special statutes and hence, the Rule of statutory interpretation of special law prevailing over the general law will be inapplicable in the present dispute, the Respondents referred to the decision of this Court in Ashoka Marketing Limited and Anr.", "v. Punjab National Bank and Ors.", " : (1990) 4 SCC 406.", "In the said case, the Court was seized of an issue on whether the provisions of the Public Premises (Eviction of Unauthorised Occupants) Act, 1971 would override the provisions of the Delhi Rent Control Act, 1958 in relation to the premises belonging to Punjab National Bank Limited, a body corporate under the Banking Companies (Acquisition and Transfer of Undertakings) Act, 1970.", "Each side argued that the enactment relied upon by it is a special statute and the other enactment is general.", "The Court held that the Rent Control Act is a special statute regulating the relationship of landlord and tenant in the Union Territory of Delhi and even the Public Premises Act is a special statute relating to eviction of unauthorised occupants from public premises.", "While concluding that both the enactments are special statutes, the Court held: 61in the case of inconsistency between the provisions of two enactments, both of which can be regarded as special in nature, the conflict has to be resolved by reference to the purpose and policy underlying the two enactments and the clear intendment conveyed by the language of the relevant provisions therein.", "64In our opinion, therefore, keeping in view the object and purpose underlying both the enactments viz. the Rent Control Act and the Public Premises Act, the provisions of the Public Premises Act have to be construed as overriding the provisions contained in the Rent Control Act.", "Heavy reliance was placed on the judgment of the United States Supreme Court in the case of Credit Suisse v. Billing et al  : 551 US 264 (2007).", "Here the submission was that if the CCI is permitted to examine the information of RJIL that it was to be provided POIs immediately despite there being a period of 90 days in the ICA, the following would be the consequences: The same may cause a threat and may alter the functioning of telecom sector on account of threat of intervention of CCI even where the acts are in accordance with TRAIs Regulations.", "The same would threaten efficient functioning of the telecom sector.", "The additional benefits to competition would be very small as the TRAI Regulations anyway have been framed keeping in mind facilitation of competition in telecom sector.", "The same would encourage future actions before CCI when telecom related issues will be dressed up as competition issues.", "It was the fervent plea that in order to avoid such conflict of standards and norms, the TRAI Act being the sectoral law and the TRAI is already seized of the matter, the CCI should not be allowed to proceed.", "According to the Respondents, the jurisdictional facts in the present matter would be: Failure to provide adequate POIs in the test phase or Delay in providing POIs or Providing inadequate POIs.", "Mr. Datar, in particular, submitted that from a perusal of the extensive pleadings and findings of the High Court, it is manifest that the above issues are pending consideration before the TRAI DoT as well as in connected writ petitions pending adjudication before the Delhi High Court.", "The emphasis was that there must first be clear findings on the above issues in the context of the TRAI Act, Rules and Regulations.", "According to him, that alone is not enough.", "It is necessary to establish that violation of the provisions of TRAI Act amounts to abuse of dominance or anti-competitive agreements.", "As per him, Section 21 and 21A of the Competition Act make it clear that jurisdiction of the CCI is divided into parts, viz.: Economic activity not regulated by any statutory authority.", "Economic activity regulated by a statutory authority.", "In the latter case, Section 21A is mandatory and the CCI can act only in accordance with Sections 21A(1) and (2).", "Submission was that in economic activity that is regulated by a statutory authority, CCI can exercise powers Under Section 26 only after complying with Section 21A. It was predicated on the principle that when the law prescribes things to be done in a particular manner, all other modes of action are prohibited.", "(Bhavnagar University v. Palitana Sugar Mill (P) Limited and Ors.", " : (2003) 2 SCC 111) In this hue, it was also argued that the decision of this Court in Competition Commission of India v. Steel Authority of India Limited and Anr.", " : (2010) 10 SCC 744 has no application to the present case because it does not deal with a sector that is regulated by a statutory authority.", "On the other hand, reliance was placed on the judgment in the case of Carona Limited v. Parvathy Swaminathan Sons  : (2007) 8 SCC 559.", "It was submitted that the facts of the SAIL case are clearly distinguishable from the present case as the main issue before the Supreme Court in SAIL was whether an appeal can be filed against an order passed Under Section 26(1) of the Competition Act.", "Distinction was sought to be drawn on the basis of the following facts: (a) in the present case, CCI issued notice and called the TSPs including Vodafone for a preliminary conference to be held on January 31, 2017 and the parties were heard on January 31, 2017, February 07, 2017 and February 08, 2017 (b) hearing was held before CCI and detailed notes on arguments were submitted with supporting documents by the TSPs including Vodafone (c) the prima facie order has been passed after hearing the submissions of the TSPs holding that a prima facie case of violation of the Competition Act has been made out and (d) the prima facie order also provide for reasons in support of the decision arrived at by the CCI.", "Justifying the observations of the High Court that the order of the CCI cannot be treated as an administrative order, it was submitted that the order was passed by the CCI after collecting the detailed information from the parties and by holding the conferences, calling material details, documents, affidavits and by recording the opinion.", "It was also submitted that the High Court had rightly noted that majority decision of the CCI has given reasons by overlooking the law and the record.", "It was a reasoned order direction and, therefore, judicial review is permissible.", "In this behalf it was submitted that the aforesaid view was taken on the basis of the following: (a) whilst an order Under Section 26(2) has been made appealable, an order Under Section 26(1) is not appealable (b) an order Under Section 26(1) of the Competition Act is a direction simpliciter to the Director General to cause an investigation (c) at the stage of passing of the order Under Section 26(1), there is no adjudicatory process undertaken by the CCI as there is no determination of any right or obligation of the parties to the lis and (d) the order passed Under Section 26(1) does not entail civil consequences for any person as against a Section 26(2) order wherein rights of the informant are affected.", "In the alternative, it was argued that the observations of the Court limited to the extent of the nature of powers vested in the CCI Under Section 26(1) needs reconsideration by this Court.", "Our discussion: We have noted of three propositions which were advanced by Mr. Narasimha, learned Additional Solicitor General.", "These are the main issues which arise for consideration.", "In fact, other counsel for the parties have also made their submissions on these aspects.", "We would, therefore, focus our discussion on the said propositions.", "We would like to mention that while analysing the arguments of all the parties, we have kept in mind their detailed submissions as well as the principles laid down in various judgments cited by them, even if we have not made specific mention to these judgments in our discussion.", "Jurisdiction of the CCI This is the principal issue which is the bone of contention.", "In order to discuss and analyse this aspect, it would be apt to take note of the salient provisions of the Competition Act as well as the TRAI Act inasmuch as that would facilitate appreciating the arguments so advanced.", "In the wake of globalisation and keeping in view the economic development of the country, responding to opening of its economy and resorting to liberalisation, need was felt to enact a law that ensures fair competition in India by prohibiting trade practices which cause an appreciable adverse effect on competition within markets in India and for establishment of an expert body in the form of Competition Commission of India, which would discharge the duty of curbing negative aspects of competition, the Competition Act, 2002 has been enacted by the Parliament.", "Having regard to this specific objective which the Act seeks to achieve, provisions contained therein, which are relevant for deciding the instant appeals, are reproduced below: Definitions.", "- xx xx xx (b) agreement includes any arrangement or understanding or action in concert, - whether or not, such arrangement, understanding or action is formal or in writing or whether or not such arrangement, understanding or action is intended to be enforceable by legal proceedings xx xx xx (c) cartel includes an association of producers, sellers, distributors, traders or service providers who, by agreement amongst themselves, limit control or attempt to control the production, distribution, sale or price of, or, trade in goods or provision of services xx xx xx Director General means the Director-General appointed Under Sub-section (1) of Section 16 and includes any Additional, Joint, Deputy or Assistant Directors General appointed under that section xx xx xx (m) practice includes any practice relating to the carrying on of any trade by a person or an enterprise xx xx xx (u) service means service of any description which is made available to potential users and includes the provision of services in connection with business of any industrial or commercial matters such as banking, communication, education, financing, insurance, chit funds, real estate, transport, storage, material treatment, processing, supply of electrical or other energy, boarding, lodging, entertainment, amusement, construction, repair, conveying of news or information and advertising xx xx xx Anti-competitive agreements.", "- (1) No enterprise or association of enterprises or person or association of persons shall enter into any agreement in respect of production, supply, distribution, storage, acquisition or control of goods or provision of services, which causes or is likely to case an appreciable adverse effect on competition within India.", "Any agreement entered into in contravention of the provisions contained in Sub-section (1) shall be void.", "Any agreement entered into between enterprises or associations of enterprises or persons or associations of persons or between any person and enterprise or practice carried on, or decision taken by, any association of enterprises or association of persons, including cartels, engaged in identical or similar trade of goods or provision of services, which - (a) directly or indirectly determines purchase or sale prices (b) limits or controls production, supply, markets, technical development, investment or provision of services (c) shares the market or source of production or provision of services by way of allocation of geographical area of market, or type of goods or services, or number of customers in the market or any other similar way (d) directly or indirectly results in bid rigging or collusive bidding, shall be presumed to have an appreciable adverse effect on competition: Provided that nothing contained in this Sub-section shall apply to any agreement entered into by way of joint ventures if such agreement increases efficiency in production, supply, distribution, storage, acquisition or control of goods or provisions of services.", "Explanation.", "- For the purpose of this Sub-section, bid rigging means by agreement, between enterprises or persons referred to in Sub-section (3) engaged in identical or similar production or trading of goods or provision of services, which has the effect of eliminating or reducing competition for bids or adversely affecting or manipulating the process for bidding.", "xx xx xx Inquiry into certain agreements and dominant position of enterprise.", "- (1) The Commission may inquire into any alleged contravention of the provisions contained in Sub-section (1) of Section 3 or Sub-section (1) of Section 4 either on its own motion or on - (a) receipt of any information, in such manner and accompanied by such fee as may be determined by Regulations, from any person, consumer or their association or trade association or (b) a reference made to it by the Central Government or a State Government or a statutory authority.", "Without prejudice to the provisions contained in Sub-section (1), the powers and functions of the Commission shall include the powers and functions specified in subsections (3) to (7).", "The Commission shall, while determining whether an agreement has an appreciable adverse effect on competition Under Section 3, have due regard to all or any of the following factors, namely: (a) creation of barriers to new entrants in the market (b) driving existing competitors out of the market (c) foreclosure of competition by hindering entry into the market (d) accrual of benefits to consumers (e) improvements in production or distribution of goods or provision of services (f) promotion of technical, scientific and economic development by means of production or distribution of goods or provision of services.", "xx xx xx 21A. Reference by Commission.", "- (1) Where in the course of a proceeding before the Commission an issue is raised by any party that any decision, which the Commission has taken during such proceeding or proposes to take, is or would be contrary to any provision of this Act whose implementation is entrusted to a statutory authority, then the Commission may make a reference in respect of such issue to the statutory authority: Provided that the Commission, may, suo motu, make such a reference to the statutory authority.", "On receipt of a reference Under Sub-section (1), the statutory authority shall give its opinion, within sixty days of receipt of such reference, to the Commission which shall consider the opinion of the statutory authority, and thereafter give its findings recording reasons therefor on the issues referred to in the said opinion.", "xx xx xx Procedure for inquiry Under Section 19.", "- (1) On receipt of a reference from the Central Government or a State Government or a statutory authority or on its own knowledge or information received Under Section 19, if the Commission is of the opinion that there exists a prima facie case, it shall direct the Director General to cause an investigation to be made into the matter: Provided that if the subject matter of an information received is, in the opinion of the Commission, substantially the same as or has been covered by any previous information received, then the new information may be clubbed with the previous information.", "Where on receipt of a reference from the Central Government or a State Government or a statutory authority or information received Under Section 19, the Commission is of the opinion that there exists no prima facie case, it shall close the matter forthwith and pass such orders as it deems fit and send a copy of its order to the Central Government or the State Government or the statutory authority or the parties concerned, as the case may be.", "The Director-General shall, on receipt of direction Under Sub-section (1), submit a report on his findings within such period as may be specified by the Commission.", "The Commission may forward a copy of the report referred to in Sub-section (3) to the parties concerned: Provided that in case the investigation is caused to be made based on reference received from the Central Government or the State Government or the statutory authority, the Commission shall forward a copy of the report referred to in Sub-section (3) to the Central Government or the State Government or the statutory authority, as the case may be.", "If the report of the Director General referred to in Sub-section (3) recommends that there is no contravention of the provisions of this Act, the Commission shall invite objections or suggestions from the Central Government or the State Government or the statutory authority or the parties concerned, as the case may be, on such report of the Director-General.", "If, after consideration of the objections and suggestions referred to in Sub-section (5), if any, the Commission agrees with the recommendation of the Director General, it shall close the matter forthwith and pass such orders as it deems fit and communicate its order to the Central Government or the State Government or the statutory authority or the parties concerned, as the case may be.", "If, after consideration of the objections or suggestions referred to in Sub-section (5), if any, the Commission is of the opinion that further investigations is called for, it may direct further investigation in the matter by the Director General or cause further inquiry to be made by in the matter or itself proceed with further inquiry in the matter in accordance with the provisions of this Act.", "If the report of the Director-General referred to in Sub-section (3) recommends that there is contravention of any of the provisions of this Act, and the Commission is of the opinion that further inquiry is called for, it shall inquire into such contravention in accordance with the provisions of this Act.", "xx xx xx Power of Commission to regulate its own procedure.", "- xx xx xx The Commission shall have, for the purposes of discharging its functions under this Act, the same powers as are vested in a Civil Court under the Code of Civil Procedure, 1908 (5 of 1908), while trying a suit, in respect of the following matters, namely: (a) summoning and enforcing the attendance of any person and examining him on oath (b) requiring the discovery and production of documents (c) receiving evidence on affidavit (d) issuing commissions for the examination of witnesses or documents (e) requisitioning, subject to the provisions of Sections 123 and 124 of the Indian Evidence Act, 1872 (1 of 1972), any public record or document or copy of such record or document from any office.", "xx xx xx Director General to investigate contraventions.", "- The Director General shall, when so directed by the Commission, assist the Commission in investigating into any contravention of the provisions of this Act or any Rules or Regulations made thereunder.", "The Director General shall have all the powers as are conferred upon the Commission Under Sub-section (2) of Section 36.", "Without prejudice to the provisions of Sub-section (2), Sections 240 and 240A of the Companies Act, 1956 (1 of 1956), so far as may be, shall apply to an investigation made by the Director General or any other person investigating under his authority, as the apply to an inspector appointed under that Act.", "Explanation.", "- For the purposes of this section, - (a) the words the Central Government Under Section 240 of the Companies Act, 1956 (1 of 1956) shall be construed as the Commission (b) the word Magistrate Under Section 240A of the Companies Act, 1956 (1 of 1956) shall be construed as the Chief Metropolitan Magistrate, Delhi.", "xx xx xx Penalty for offences in relation to furnishing of information.", "- (1) Without prejudice to the provisions of Section 44, if a person, who furnishes or is required to furnish under this act any particulars, documents or any information, - (a) makes any statement or furnishes any document which he knows or has reason to believe to be false in any material particular or (b) omits to state any material fact knowing it to be material or (c) wilfully alters, suppresses or destroys any document which is required to be furnished as aforesaid, such person shall be punishable with fine which may extend to rupees one crore as may be determined by the Commission.", "Without prejudice to the provisions of Sub-section (1), the Commission may also pass such other order as it deems fit.", "xx xx xx Act to have overriding effect.", "- The provisions of this Act shall have effect notwithstanding anything inconsistent therewith contained in any other law for the time being in force.", "Exclusion of jurisdiction of civil courts.", "- No civil court shall have jurisdiction to entertain any suit or proceeding in respect of any matter which the Commission or the Appellate Tribunal is empowered by or under this Act to determine and no injunction shall be granted by any court or other authority in respect of any action taken or to be taken in pursuance of any power conferred by or under this Act.", "Application of other laws not barred.", "- The provisions of this Act shall be in addition to, and not in derogation of, the provisions of any other law for the time being in force.", "The aforesaid provisions would indicate that the Act deals with three kinds of practices which are treated as anti-competitive and are prohibited.", "These are: (a) where agreements are entered into by certain persons with a view to cause an appreciable adverse effect on competition (b) where any enterprise or group of enterprises, which enjoys dominant position, abuses the said dominant position and (c) regulating the combination of enterprises by means of mergers or amalgamations to ensure that such mergers or amalgamations do not become anti-competitive or abuse the dominant position which they can attain.", "The objective behind the Act and rationale in curbing the aforesaid anti-competitive practices was taken note of in Excel Crop Care Limited v. Competition Commission of India and Anr.", " : (2017) 8 SCC 47 and we would like to reproduce the following passages therefrom: In the instant case, we are concerned with the first type of practices, namely, anti-competitive agreements.", "The Act, which prohibits anti-competitive agreements, has a laudable purpose behind it.", "It is to ensure that there is a healthy competition in the market, as it brings about various benefits for the public at large as well as economy of the nation.", "In fact, the ultimate goal of competition policy (or for that matter, even the consumer policies) is to enhance consumer well-being.", "These policies are directed at ensuring that markets function effectively.", "Competition policy towards the supply side of the market aims to ensure that consumers have adequate and affordable choices.", "Another purpose in curbing anti-competitive agreements is to ensure level playing field for all market players that helps markets to be competitive.", "It sets rules of the game that protect the competition process itself, rather than competitors in the market.", "In this way, the pursuit of fair and effective competition can contribute to improvements in economic efficiency, economic growth and development of consumer welfare.", "How these benefits accrue is explained in the ASEAN Regional Guidelines on Competition Policy, in the following manner: 2.2.", "Main Objectives and Benefits of Competition Policy 2.2.1.1.", "Economic efficiency: Economic efficiency refers to the effective use and allocation of the economys resources.", "Competition tends to bring about enhanced efficiency, in both a static and a dynamic sense, by disciplining firms to produce at the lowest possible cost and pass these cost savings on to consumers, and motivating firms to undertake research and development to meet customer needs.", "2.2.1.2.", "Economic growth and development: Economic growth-the increase in the value of goods and services produced by an economy-is a key indicator of economic development.", "Economic development refers to a broader definition of an economys well-being, including employment growth, literacy and mortality rates and other measures of quality of life.", "Competition may bring about greater economic growth and development through improvements in economic efficiency and the reduction of wastage in the production of goods and services.", "The market is therefore able to more rapidly reallocate resources, improve productivity and attain a higher level of economic growth.", "Over time, sustained economic growth tends to lead to an enhanced quality of life and greater economic development.", "2.2.1.3.", "Consumer Welfare: Competition policy contributes to economic growth to the ultimate benefit of consumers, in terms of better choice (new products), better quality and lower prices.", "Consumer welfare protection may be required in order to redress a perceived imbalance between the market power of consumers and producers.", "The imbalance between consumers and producers may stem from market failures such as information asymmetries, the lack of bargaining position towards producers and high transaction costs.", "Competition policy may serve as a complement to consumer protection policies to address such market failures.", "The aforesaid Guidelines also spell out few more benefits of such laws incorporating competition policies by highlighting the following advantages: 2.2.2.", "In addition, competition policy is also beneficial to developing countries.", "Due to worldwide deRegulation, privatisation and liberalisation of markets, developing countries need a competition policy, in order to monitor and control the growing role of the private sector in the economy so as to ensure that public monopolies are not simply replaced by private monopolies.", "2.2.3.", "Besides contributing to trade and investment policies, competition policy can accommodate other policy objectives (both economic and social) such as the integration of national markets and promotion of regional integration, the promotion or protection of small businesses, the promotion of technological advancement, the promotion of product and process innovation, the promotion of industrial diversification, environment protection, fighting inflation, job creation, equal treatment of workers according to race and gender or the promotion of welfare of particular consumer groups.", "In particular, competition policy may have a positive impact on employment policies, reducing redundant employment (which often results from inefficiencies generated by large incumbents and from the fact that more dynamic enterprises are prevented from entering the market) and favouring jobs creation by new efficient competitors.", "2.2.4.", "Competition policy complements trade policy, industrial policy and regulatory reform.", "Competition policy targets business conduct that limits market access and which reduces actual and potential competition, while trade and industrial policies encourage adjustment to the trade and industrial structures in order to promote productivity-based growth and regulatory reform eliminates domestic Regulation that restricts entry and exit in the markets.", "Effective competition policy can also increase investor confidence and prevent the benefits of trade from being lost through anti-competitive practices.", "In this way, competition policy can be an important factor in enhancing the attractiveness of an economy to foreign direct investment, and in maximising the benefits of foreign investment.", "In fact, there is broad empirical evidence supporting the proposition that competition is beneficial for the economy.", "Economists agree that it has an important role to play in improving productivity and, therefore, the growth prospects of an economy.", "It is achieved in the following manner: International Competition Network - Economic Growth and Productivity Competition contributes to increased productivity through: Pressure on firms to control costs-In a competitive environment, firms must constantly strive to lower their production costs so that they can charge competitive prices, and they must also improve their goods and services so that they correspond to consumer demands.", "Easy market entry and exit-Entry and exit of firms reallocates resources from less to more efficient firms.", "Overall productivity increases when an entrant is more efficient than the average incumbent and when an existing firm is less efficient than the average incumbent.", "Entry-and the threat of entry- incentivises firms to continuously improve in order not to lose market share to or be forced out of the market by new entrants.", "Encouraging innovation-Innovation acts as a strong driver of economic growth through the introduction of new or substantially improved products or services and the development of new and improved processes that lower the cost and increase the efficiency of production.", "Incentives to innovate are affected by the degree and type of competition in a market.", "Pressure to improve infrastructure-Competition puts pressure on communities to keep local producers competitive by improving roads, bridges, docks, airports and communications, as well as improving educational opportunities.", "Benchmarking-Competition also can contribute to increased productivity by creating the possibility of benchmarking.", "The productivity of a monopolist cannot be measured against rivals in the same geographic market, but a dose of competition quickly will expose inferior performance.", "A monopolist may be content with mediocre productivity but a firm battling in a competitive market cannot afford to fall behind, especially if the investment community is benchmarking it against its rivals.", "Productivity is increased through competition by putting pressure on firms to control costs as the producers strive to lower their production costs so that they can charge competitive prices.", "It also improves the quality of their goods and services so that they correspond to consumers demands.", "Competition law enforcement deals with anticompetitive practices arising from the acquisition or exercise of undue market power by firms that result in consumer harm in the forms of higher prices, lower quality, limited choices and lack of innovation.", "Enforcement provides remedies to avoid situations that will lead to decreased competition in markets.", "Effective enforcement is important not only to sanction anti-competitive conduct but also to deter future anti-competitive practices.", "When we recognise that competition has number of benefits, it clearly follows that cartels or anti-competitive agreements cause harm to consumers by fixing prices, limiting outputs or allocating markets.", "Effective enforcement against such practices has direct visible effects in terms of reduced prices in the market and this is also supported by various empirical studies.", "Keeping in view the aforesaid objectives that need to be achieved, Indian Parliament enacted the Competition Act, 2002.", "Need to have such a law became all the more important in the wake of liberalisation and privatisation as it was found that the law prevailing at that time, namely, Monopolies and Restrictive Trade Practices Act, 1969 was not equipped adequately enough to tackle the competition aspects of the Indian economy.", "The law enforcement agencies, which include CCI and COMPAT, have to ensure that these objectives are fulfilled by curbing anticompetitive agreements.", "Once the aforesaid purpose sought to be achieved is kept in mind, and the same is applied to the facts of this case after finding that the anti-competitive conduct of the Appellants continued after coming into force of provisions of Section 3 of the Act as well, the argument predicated on retrospectivity pales into insignificance.", "One has to keep in mind the aforesaid objective which the legislation in question attempts to subserve and the mischief which it seeks to remedy.", "As pointed out above, Section 18 of the Act casts an obligation on CCI to eliminate anti-competitive practices and promote competition, interests of the consumers and free trade.", "It was rightly pointed out by Mr. Neeraj Kishan Kaul, the learned Additional Solicitor General, that the Act is clearly aimed at addressing the evils affecting the economic landscape of the country in which interest of the society and consumers at large is directly involved.", "This is so eloquently emphasised by this Court in Competition Commission of India v. SAIL in the following manner: (SCC pp.", "755-56 794, paras 6, 8-10 125) As far as the objectives of competition laws are concerned, they vary from country to country and even within a country they seem to change and evolve over the time.", "However, it will be useful to refer to some of the common objectives of competition law.", "The main objective of competition law is to promote economic efficiency using competition as one of the means of assisting the creation of market responsive to consumer preferences.", "The advantages of perfect competition are threefold: allocative efficiency, which ensures the effective allocation of resources, productive efficiency, which ensures that costs of production are kept at a minimum and dynamic efficiency, which promotes innovative practices.", "These factors by and large have been accepted all over the world as the guiding principles for effective implementation of competition law.", "xx xx xx The Bill sought to ensure fair competition in India by prohibiting trade practices which cause appreciable adverse effect on the competition in market within India and for this purpose establishment of a quasi-judicial body was considered essential.", "The other object was to curb the negative aspects of competition through such a body, namely, the Competition Commission of India (for short the Commission) which has the power to perform different kinds of functions, including passing of interim orders and even awarding compensation and imposing penalty.", "The Director General appointed Under Section 16(1) of the Act is a specialised investigating wing of the Commission.", "In short, the establishment of the Commission and enactment of the Act was aimed at preventing practices having adverse effect on competition, to protect the interest of the consumer and to ensure fair trade carried out by other participants in the market in India and for matters connected therewith or incidental thereto.", "The various provisions of the Act deal with the establishment, powers and functions as well as discharge of adjudicatory functions by the Commission.", "Under the scheme of the Act, this Commission is vested with inquisitorial, investigative, regulatory, adjudicatory and to a limited extent even advisory jurisdiction.", "Vast powers have been given to the Commission to deal with the complaints or information leading to invocation of the provisions of Sections 3 and 4 read with Section 19 of the Act.", "In exercise of the powers vested in it Under Section 64, the Commission has framed Regulations called the Competition Commission of India (General) Regulations, 2009 (for short the Regulations).", "The Act and the Regulations framed thereunder clearly indicate the legislative intent of dealing with the matters related to contravention of the Act, expeditiously and even in a time-bound programme.", "Keeping in view the nature of the controversies arising under the provisions of the Act and larger public interest, the matters should be dealt with and taken to the logical end of pronouncement of final orders without any undue delay.", "In the event of delay, the very purpose and object of the Act is likely to be frustrated and the possibility of great damage to the open market and resultantly, countrys economy cannot be ruled out.", "It is for the aforesaid reason that the CCI is entrusted with duties, powers and functions to deal with three kinds of anti-competitive practices mentioned above.", "The purpose is to eliminate such practices which are having adverse effect on the competition, to promote and sustain competition and to protect the interest of the consumers and ensure freedom of trade, carried on by the other participants, in India.", "For the purpose of conducting such an inquiry, the CCI is empowered to call any person for rendering assistance and or produce the records material for arriving at even the prima facie opinion.", "The Regulations also empower the CCI to hold conferences with the concerned persons parties, including their advocates authorised persons.", "It is also relevant to mention at this stage that while inquiring into any alleged contravention and determining whether any agreement has an appreciable adverse effect on competition, factors which are to be taken into consideration are mentioned in Sub-section (3) of Section 19.", "These include creation of barriers to new entrants in the market, driving existing competitors out of the market and foreclosure of competition by hindering entry into the market.", "All these activities have connection with the market.", "The word market has reference to relevant market.", "As per Sub-section (5) of Section 19, such relevant market can be relevant geographic market or relevant product market.", "In the present case, we are concerned with the relevant product market, viz. telecommunication market.", "Sub-section (7) of Section 19 enumerates the factors which are to be kept in mind while determining the relevant product market.", "Market definition is a tool to identify and define the boundaries of competition between firms.", "It serves to establish the framework within which the competition policy is applied by the Commission.", "The main purpose of market definition is to identify in a systematic way the competitive constraints that the undertakings involved face.", "The objective of defining a market in both its product and geographic dimension is to identify those actual competitors of the undertakings involved that are capable of constraining those undertakings behaviour and of preventing them from behaving independently of effective competitive pressure.", "Therefore, the purpose of defining the relevant market is to assess with identifying in a systematic way the competitive constraints that undertakings face when operating in a market.", "This is the case in particular for determining if undertakings are competitors or potential competitors and when assessing the anticompetitive effects of conduct in a market.", "The concept of relevant market implies that there could be an effective competition between the products which form part of it and this presupposes that there is a sufficient degree of interchangeability between all the products forming part of the same market insofar as specific use of such product is concerned.", "In essence, it is the notion of power over the market which is the key to analyse many competitive issues.", "It is an admitted position that in the instant case we are dealing with the telecom market, which is the relevant market.", "An interesting feature is that this telecom market is also regulated by the statutory regime contained in the TRAI Act.", "Under the said Act, TRAI is established as a regulator which exercises control supervision and also provides guidance to the telecom mobile market.", "This statutory body is required to function as per the provisions of the TRAI Act as well as the Rules and Regulations framed thereunder.", "Additionally, the telecom companies are also governed by licence agreements entered into between the Central Government and such service providers, for providing telephone telecommunication services to the customers subscribers.", "At this stage, therefore, we take note of the relevant provisions of the TRAI Act: Functions of Authority.", "- (1) Notwithstanding anything contained in the Indian Telegraph Act, 1885 (13 of 1885), the functions of the Authority shall be to - (a) make recommendations, either suo motu or on a request from the licensor, on the following matters, namely: xx xx xx measures to facilitate competition and promote efficiency in the operation of telecommunication services so as to facilitate growth in such services xx xx xx (b) discharge the following functions, namely: ensure compliance of terms and conditions of licence notwithstanding anything contained in the terms and conditions of the licence granted before the commencement of the Telecom Regulatory Authority of India (Amendment) Act, 2000, fix the terms and conditions of inter-connectivity between the service providers ensure technical compatibility and effective interconnection between different service providers regulate arrangement amongst service providers of sharing their revenue derived from providing telecommunication services lay-down the standards of quality of service to be provided by the service providers and ensure the quality of service and conduct the periodical survey of such service provided by the service providers so as to protect interest of the consumers of telecommunication service lay-down and ensure the time period for providing local and long distance circuits of telecommunication between different service providers maintain register of interconnect agreements and of all such other matters as may be provided in the Regulations keep register maintained under Clause (vii) open for inspection to any member of public on payment of such fee and compliance of such other requirement as may be provided in the Regulations ensure effective compliance of universal service obligations (c) levy fees and other charges at such rates and in respect of such services as may be determined by Regulations (d) perform such other functions including such administrative and financial functions as may be entrusted to it by the Central Government or as may be necessary to carry out the provisions of this Act: Provided that the recommendations of the Authority specified in Clause (a) of this Sub-section shall not be binding upon the Central Government.", "xx xx xx Establishment of Appellate Tribunal.", "- The Central Government shall, by notification, establish an Appellate Tribunal to be known as the Telecom Disputes Settlement and Appellate Tribunal to - (a) adjudicate any dispute - between a licensor and a licensee between two or more service providers between a service provider and a group of consumers: Provided that nothing in this Clause shall apply in respect of matters relating to - (A) the monopolistic trade practice, restrictive trade practice and unfair trade practice which are subject to the jurisdiction of the Monopolies and Restrictive Trade Practices Commission established Under Sub-section (1) of Section 5 of the Monopolies and Restrictive Trade Practices Act, 1969 (54 of 1969) (B) the complaint of an individual consumer maintainable before a Consumer Disputes Redressal Forum or a Consumer Disputes Redressal Commission or the National Consumer Redressal Commission established Under Section 9 of the Consumer Protection Act, 1986 (68 of 1986) (C) dispute between telegraph authority and any other person referred to in Sub-section (1) of Section 7B of the Indian Telegraph Act, 1885 (13 of 1885) (b) hear and dispose of appeal against any direction, decision or order of the Authority under this Act.", "xx xx xx Procedure and powers of Appellate Tribunal.", "- (1) The Appellate Tribunal shall not be bound by the procedure laid down by the Code of Civil Procedure, 1908 (5 of 1908), but shall be guided by the principles of natural justice and, subject to the other provisions of this Act, the Appellate Tribunal shall have powers to regulate its own procedure.", "The Appellate Tribunal shall have, for the purposes of discharging the functions under this Act, the same powers as are vested in a civil court under the Code of Civil Procedure, 1908 (5 of 1908), while trying a suit, in respect of the following matters, namely: (a) summoning and enforcing the attendance of any person and examining him on oath (b) requiring the discovery and production of documents (c) receiving evidence on affidavits (d) subject to the provisions of Section 123 and 124 of the Indian Evidence Act, 1872 (1 of 1872), requisitioning any public record or document or a copy of such record or document, from any office (e) issuing commissions for the examination of witnesses or documents (f) reviewing its decisions (g) dismissing an application for default or deciding it, ex parte (h) setting aside any order of dismissal of any application for default or any order passed by it, ex parte and any other matter which may be prescribed.", "Every proceeding before the Appellate Tribunal shall be deemed to be a judicial proceeding within the meaning of Sections 193 and 228, and for the purposes of Section 196 of the Indian Penal Code (45 of 1860) and the Appellate Tribunal shall be deemed to be a civil court for the purposes of Section 195 and Chapter XXVI of the Code of Criminal Procedure, 1973 (2 of 1974).", "Other provisions in the telecom sector which are relevant for the purposes of these appeals are taken note of by the High Court as under: Telecommunication laws binds all The relevant licenses Unified License (UL) - The UL issued by Department of Telecommunications, Government of India (DoT) for providing telecommunication services on a pan India basis.", "Licence Under Section 4 of Indian Telegraph Act, 1885 therefore they become Telecom Service Provider (TSP).", "Relevant clauses of the UL (UASL) are - Clause 16 of Part-I: Other conditions: The licensee is bound by all TRAI Orders Directions Regulations Clause 27 of Part-I: Network Interconnection, particularly, Clause 27.4, which requires a licensee to interconnect subject to compliance with prevailing Regulations and determinations issued by TRAI, and contemplates the execution of ICAs to establish interconnection in sufficient capacity and number to enable transmission and reception of messages between the interconnected systems Clause 29 of Part-I, requiring a licensee to ensure QoS standards as may be prescribed by DoT TRAI.", "Specifically, Clause 29.4, empowers DoT TRAI to evaluate QoS parameters prior to grant of permission for commencement of services and Clause 6.2 of Part-II, which requires a licensee to provide interconnection to all TSPs to ensure that calls are completed to all destinations.", "Inter-connection Agreements Similar separate Interconnection Agreements (ICAs) are executed between the parties.", "The relevant clauses of ICAs are as under: Clause 2.4: RJIL will be required to establish Interconnection at the Switches of IDEA as listed in Schedule I. In addition to these specified locations, the Parties may further agree to interconnect at an additional location(s) as mutually agreed to by and between the parties during the term of this Agreement Clause 5.7: At the end of two years, the Parties shall convert the total E1s existing at the POIs into one-way E1s for the Outgoing Traffic of each Party on the basis of the traffic ratio existing 3 months prior to the expiry of the initial period of two years.", "These E1s shall thereafter be continued as one-way E1s for the remaining term of the Agreement at the cost of RJIL Clause 9.1: A minimum notice of 4 weeks has to be given by either Party for augmentations of Interconnect Links Clause 9.2: Augmentation shall be completed within 90 days of receipt of requisite charges specified in Schedule 2 from RJIL Clause 9.3: Any request for augmentation of capacity shall be in writing with Performance reports as prescribed in Schedule 4 Clause 9.4: Traffic measurements for 7 days shall be taken by both the parties during agreed busy route hours, every 6 months after commencement of traffic at the POIs to determine further capacity requirements Clause 9.5: RJIL shall provide a forecast in writing in advance for its requirement of port capacity for Telephony Traffic for the next 6 months to enable IDEA to dimension the required capacity in its network The relevant clauses of the ICAs are: Clause 2 makes clear that the ICA will be applicable and in effect from the date of execution Clause 2.10 makes clear that the interconnection facilities at each POI will conform to the applicable QoS standards prescribed by TRAI Clause 3 - Terms and Amendments - again makes clear that the ICA becomes applicable, effective and operational from the date of execution and is valid until both parties hold a valid license for providing access services Clause 4 - Applicability and Providing Services - reiterates that the ICA becomes applicable on signing and is subject to the terms and conditions of the telecom licence Clause 5.2 specifically provides that for the initial two years, provision and augmentation of transmission links shall be at the cost of RJIL Clause 5.7 contemplates conversion of two-way E1s into one-way E1s only after two years, which in other words mean that for two years all E1s must be two-way E1s Clause 9 provides modalities for enhancement of ports and Clause 10.7 again reiterates that Idea is bound to maintain QoS standards prescribed by TRAI.", "Quality of Service Regulations, 2009 Quality of Service Regulations (QoS Regulations, 2009) issued by TRAI Under Section 36 read with Section 11 of the TRAI Act.", "Clause 5(iv) and Clause 14, as relevant, are reproduced as under: Clause 5(iv) prescribes that the congestion at each individual POI cannot exceed 0.5 over a period of one month (no more than 5 out of every 100 calls can fail).", "Clause 14 provides that in the event of any doubt regarding interpretation of any of the provisions of the QoS Regulations, the view of the TRAI shall be final and binding.", "The relevant clauses of the Standards of Quality of Service of Basic Telephone Service (wireline) and Cellular Mobile Telephone Service Regulations, 2009 includes Cellular Mobile Telephone Services.", "The terms Point of Interconnection (POI), Quality of Service (QoS), Service Provider, Telecommunication services have been defined in the Regulations.", "The term POI congestion is also described in 3.12 and 4.7 of POI.", "Some of the features which govern the telecommunication industry and noted by the High Court may also be captured at this stage.", "These are: To protect the interest of the service providers and consumers of the telecom sector and to permit and ensure technical compatibility and effective inter-relationship between different service providers and for ensuring compliance of licence conditions by all the service providers, TRAI was constituted under the Telecom Regulatory Authority of India Act, 1997.", "TRAI is a recommendatory advisory and regulatory body discharging the functions envisaged Under Sub-section (1) of Section 11 of the said Act.", "TRAI, inter alia, is charged with ensuring fair competition amongst service providers, including fixing the terms and conditions of entire activity between the service providers and laying down the standards of Quality of Service (QoS) to be provided by each service provider.", "In exercise of its functions, TRAI has issued detailed Regulations for telecom services, including fixation and revision of tariffs (Tariff Order), fixation of Inter-connect Usage Charges (IUC), prescription of quality of service standards, etc.", "The Telecom Service Providers, which include the Respondents as well as RJIL, provide telecommunication access service and are PAN India Telecom Service Providers.", "They are governed by the Cellular Mobile Telephone Service (CMTS) Unified Access Service Licence (UASL) issued by the Telecommunications Department, Government of India Under Section 4 of the Telegraph Act.", "The Central Government has the exclusive privilege of establishing, maintaining and working telegraphs under the Telegraph Act and the Central Government is authorised to grant licence on such terms and conditions and in consideration of such payment as it thinks fit to any person to establish, maintain or work as telegraph within any part of the country.", "By virtue of Section 4 of the Telegraph Act, a service provider is duty bound to enter into a licence agreement with the former for unified licence, with authorisation for provision of services, as per the terms and conditions prescribed in the Schedule.", "As a condition of the said licence, the licensee agrees and unequivocally undertakes to fully comply with the terms and conditions stipulated in the licence agreement without any deviation or reservation of any kind.", "The licence is governed by the provisions of the Telegraph Act, the Indian Wireless Telegraphy Act, 1933, the TRAI Act and the Information Technology Act, 2000, as modified or regulated from time to time.", "In order to ensure that there is smooth interconnectivity and a consumer who is the subscriber of mobile phone of one service provider, say for e.g. Vodafone, and wants to make call to a mobile phone of his friend which is provided by another service provider, say Idea Cellular, the unified licenses put an obligation on all these licensees to interconnect with each other on the POI.", "This is so mentioned in Clause 27.4 of Part I of the Schedule to the unified licence.", "Such interconnectivity of POI is subject to compliance of Regulation directions issued by TRAI.", "The interconnection agreement, inter alia, provides for the following clauses: (a) to meet all reasonable demand for the transmission and reception of messages between the interconnect systems (b) to establish and maintain such one or more POIs as are reasonably required and are of sufficient capacity and in sufficient numbers to enable transmission and reception of the messages by means of applicable systems and (c) to connect and keep connected to the applicable systems.", "Some of the other clauses of the interconnection agreement are as follows: A minimum four weeks written notice has to be given by either party for augmentation of interconnect links.", "Augmentation shall be completed within 90 days of receipt of requisite charges specified in the Schedule.", "Either party shall provide a forecast in writing, in advance for its requirements of port capacity for Telephony Traffic for the next six months to enable the other party to dimension the required capacity in its network.", "The interconnection tests for reach and every interface will be carried out by mutual arrangement between signatories of the agreement.", "By virtue of the licence, the licensee is obligated to ensure quality of service as prescribed by the licensor or TRAI and failure on their part to adhere to the quality of service stipulated by TRAI would make the licensor liable to be treated for breach of the terms and conditions of the licence.", "In order to render effective services, it is mandatory for the licensee to interconnect provide POIs to all eligible telecom service providers to ensure that calls are completed to all destinations and interconnection agreement is entered into between the different service providers which mandates each of the party to the agreement to provide to the other interconnection traffic carriage and all the technical and operational quality service and time lines, i.e. the equivalent to that which the party provides to itself.", "The interconnection agreement separately entered into different service providers is based on the format prescribed in the Telecommunication Interconnection (Reference Interconnect Offer) Regulations, 2002.", "POI is defined in the agreement, in the following words: POI are those points between two network operators which allow voice call originating from the work of one operator to terminate on the network by other operator.", "We may also note that on June 07, 2005 a direction was issued Under Section 13 read with Sub-clause (i) to (v) of Sub-clause (b) of Section 11 of the TRAI Act, which provides as follows: In exercise of the powers vested in it Under Section 13 read with Section 11(1)(b)(i), (ii), (iii), (iv) and (v) of the Telecom Regulatory Authority of India Act, 1997 and in order to ensure compliance of terms and conditions of license and effective interconnection between service providers and to protect consumer interest, the Authority hereby directs all service providers to provide interconnection on the request of the interconnection seeker within 90 days of the applicable payments made by the interconnection seeker.", "Further there is a direction issued by the Government of India, Ministry of Telecommunication dated 28th August, 2005 by which directions have been issued to provide data of subscribers in the prescribed format.", "From the aforesaid analysis of the scheme contained in the TRAI Act, it becomes clear that the functioning of the telecom companies which are granted licence Under Section 4 of the Telegraph Act is regulated by the provisions contained in the TRAI Act.", "TRAI is a regulator which regulates the telecom industry, which is a statutory body created under the TRAI Act.", "The necessity of such regulators has been emphasised by a Constitution Bench of this Court in Modern Dental College and Research Centre and Ors.", "v. State of Madhya Pradesh and Ors.", " : (2016) 7 SCC 353 in the following words: Need for regulatory mechanism Regulatory mechanism, or what is called regulatory economics, is the order of the day.", "In the last 60-70 years, economic policy of this country has travelled from laissez faire to mixed economy to the present era of liberal economy with regulatory regime.", "With the advent of mixed economy, there was mushrooming of the public sector and some of the key industries like aviation, insurance, railways, electricity power, telecommunication, etc.", "were monopolised by the State.", "Licence permit raj prevailed during this period with strict control of the Government even in respect of those industries where private sectors were allowed to operate.", "However, Indian economy experienced major policy changes in early 90s on LPG Model i.e. liberalisation, privatisation and globalisation.", "With the onset of reforms to liberalise the Indian economy, in July 1991, a new chapter has dawned for India.", "This period of economic transition has had a tremendous impact on the overall economic development of almost all major sectors of the economy.", "When we have a liberal economy which is regulated by the market forces (that is why it is also termed as market economy), prices of goods and services in such an economy are determined in a free price system set up by supply and demand.", "This is often contrasted with a planned economy in which a Central Government determines the price of goods and services using a fixed price system.", "Market economies are also contrasted with mixed economy where the price system is not entirely free, but under some government control or heavily regulated, which is sometimes combined with State led economic planning that is not extensive enough to constitute a planned economy.", "With the advent of globalisation and liberalisation, though the market economy is restored, at the same time, it is also felt that market economies should not exist in pure form.", "Some Regulation of the various industries is required rather than allowing self-Regulation by market forces.", "This intervention through regulatory bodies, particularly in pricing, is considered necessary for the welfare of the society and the economists point out that such regulatory economy does not rob the character of a market economy which still remains a market economy.", "Justification for regulatory bodies even in such industries managed by private sector lies in the welfare of people.", "Regulatory measures are felt necessary to promote basic well being for individuals in need.", "It is because of this reason that we find regulatory bodies in all vital industries like, insurance, electricity and power, telecommunications, etc.", "Thus, with the advent of globalisation liberalisation leading to free market economy, regulators in respect of each sector have assumed great significance and importance.", "It becomes their bounden duty to ensure that such a regulator fulfils the objectives enshrined in the Act under which a particular regulator is created.", "Insofar as the telecom sector is concerned, the TRAI Act itself mentions the objective which it seeks to achieve.", "It not only exercises control supervision over the telecom service providers licensees, TRAI is also supposed to provide guidance to the telecom mobile market.", "Introduction to the TRAI Act itself mentions that due to tremendous growth in the services it was considered essential to regulate the telecommunication services by a regulatory body which should be fully empowered to control the services, in the best interest of the country as well as the service providers.", "Likewise, the Statement of Objects and Reasons of this Act, inter alia, stipulates as under: In the context of the National Telecom Policy, 1994, which amongst other things, stresses on achieving the universal service, bringing the quality of telecom services to world standards, provisions of wide range of services to meet the customers demand at reasonable price, and participation of the companies registered in India in the area of basic as well as value added telecom services as also making arrangements for protection and promotion of consumer interest and ensuring fair competition, there is a felt need to separate regulatory functions from service providing functions which will be in keeping with the general trend in the world.", "In the multi-operator situation arising out of opening of basic as well as value added services in which private operator will be competing with Government operators, there is a pressing need for an independent telecom regulatory body for Regulation of telecom services for orderly and healthy growth of telecommunication infrastructure apart from protection of consumer interest.", "xx xx xx The powers and functions of the Authority, inter alia, are.- ensuring technical compatibility and effective inter-relationship between different service providers Regulation of arrangement amongst service providers of sharing their revenue derived from providing telecommunication services ensuring compliance of licence conditions by all service providers protection of the interest of the consumers of telecommunication service settlement of disputes between service providers fixation of rates for providing telecommunication service within India and outside India ensuring effective compliance of universal service obligations.", "TRAI is, thus, constituted for orderly and healthy growth of telecommunication infrastructure apart from protection of consumer interest.", "It is assigned the duty to achieve the universal service which should be of world standard quality on the one hand and also to ensure that it is provided to the customers at a reasonable price, on the other hand.", "In the process, purpose is to make arrangements for protection and promotion of consumer interest and ensure fair competition.", "It is because of this reason that the powers and functions which are assigned to TRAI are highlighted in the Statement of Objects and Reasons.", "Specific functions which are assigned to TRAI, amongst other, including ensuring technical compatibility and effective interrelationship between different service providers ensuring compliance of licence conditions by all service providers and settlement of disputes between service providers.", "In the instant case, dispute raised by RJIL specifically touches upon these aspects as the grievance raised is that the IDOs have not given POIs as per the licence conditions resulting into non-compliance and have failed to ensure inter se technical compatibility thereby.", "Not only RJIL has raised this dispute, it has even specifically approached TRAI for settlement of this dispute which has arisen between various service providers, namely, RJIL on the one hand and the IDOs on the other, wherein COAI is also roped in.", "TRAI is seized of this particular dispute.", "It is a matter of record that before the TRAI, IDOs have refuted the aforesaid claim of RJIL.", "Their submission is that not only required POIs were provided to RJIL, it is the RJIL which is in breach as it was making unreasonable and excessive demand for POIs.", "It is specifically pleaded by the IDOs that: RJIL raised its demand for POIs for the first time on June 21, 2016.", "In the letter dated June 21, 2016, it was admitted that RJIL was in test phase.", "There was no express mention of any commercial launch date.", "As per the letter, immediately on commercial launch RJIL would have a 22mn subscriber base for which number series was already allotted.", "As per the DoT Circular dated August 29, 2005 test customers are not considered as subscribers and test customers can only be in the form of business partners.", "It was highlighted that problem, if any, of congestion has been suffered on account of provisioning of full-fledged services during test phase.", "RJIL in its complaint before the TRAI was not considering the period of 90 days as was prescribed in the Interconnection Agreement.", "It was instead proceeding on the basis that the demand for POIs should be met on an immediate basis.", "There was several errors in the forecast made by RJIL.", "The tables given by the RJIL are wrong as they take into account its total demand at the end of nine months against what was actually provided.", "Learned Counsel appearing for the IDOs had also argued that the first firm demand for provisioning of POIs was made by RJIL on June 21, 2016.", "According to the IDOs, in that letter, RJIL had expressly admitted that it was under test phase and had not commenced commercial services.", "RJIL had also stated that the demand for POIs was being made to provide seemless connectivity to targeted subscribers as against test consumers.", "Their submission was that it was not disclosed at all as to when RJIL was going to launch commercial services.", "On the basis of the aforesaid stand taken by the IDOs, their argument is that in the first instance it is the TRAI which is not only competent but more appropriate authority to consider these aspects as it is the TRAI which is the specialised body going by the nature of dispute between the parties, following aspects have to be determined by the TRAI: Whether IDOs were under any obligation to provide POIs during test period? As per the letter dated June 21, 2016 from RJIL, when IDOs were to commence provisioning of POIs to RJIL? Whether the demand for POIs made by RJIL were reasonable or not? Whether there was any delay denial at the end of Vodafone in provisioning of POIs? Whether the POIs were to be provided immediately and during test phase? Whether IDOs have provided sufficient number of POIs to RJIL in conformity with the licence conditions? We are of the opinion that as the TRAI is constituted as an expert regulatory body which specifically governs the telecom sector, the aforesaid aspects of the disputes are to be decided by the TRAI in the first instance. These are jurisdictional aspects.", "Unless the TRAI finds fault with the IDOs on the aforesaid aspects, the matter cannot be taken further even if we proceed on the assumption that the CCI has the jurisdiction to deal with the complaints information filed before it.", "It needs to be reiterated that RJIL has approached the DoT in relation to its alleged grievance of augmentation of POIs which in turn had informed RJIL vide letter dated September 06, 2016 that the matter related to inter-connectivity between service providers is within the purview of TRAI.", "RJIL thereafter approached TRAI TRAI intervened and issued show-cause notice dated September 27, 2016 and post issuance of show-cause notice and directions, TRAI issued recommendations dated October 21, 2016 on the issue of inter-connection and provisioning of POIs to RJIL.", "The sectoral authorities are, therefore, seized of the matter.", "TRAI, being a specialised sectoral regulator and also armed with sufficient power to ensure fair, non-discriminatory and competitive market in the telecom sector, is better suited to decide the aforesaid issues.", "After all, RJILs grievance is that inter-connectivity is not provided by the IDOs in terms of the licenses granted to them.", "TRAI Act and Regulations framed thereunder make detailed provisions dealing with intense obligations of the service providers for providing POIS.", "These provisions also deal as to when, how and in what manner POIs are to be provisioned.", "They also stipulate the charges to be realised for POIs that are to be provided to another service provider.", "Even the consequences for breach of such obligations are mentioned.", "We, therefore, are of the opinion that the High Court is right in concluding that till the jurisdictional issues are straightened and answered by the TRAI which would bring on record findings on the aforesaid aspects, the CCI is ill-equipped to proceed in the matter.", "Having regard to the aforesaid nature of jurisdiction conferred upon an expert regulator pertaining to this specific sector, the High Court is right in concluding that the concepts of subscriber, test period, reasonable demand, test phase and commercial phase rights and obligations, reciprocal obligations of service providers or breaches of any contract and or practice, arising out of TRAI Act and the policy so declared, are the matters within the jurisdiction of the Authority TDSAT under the TRAI Act only.", "Only when the jurisdictional facts in the present matter as mentioned in this judgment particularly in paras 56 and 82 above are determined by the TRAI against the IDOs, the next question would arise as to whether it was a result of any concerted agreement between the IDOs and COAI supported the IDOs in that endeavour.", "It would be at that stage the CCI can go into the question as to whether violation of the provisions of TRAI Act amounts to abuse of dominance or anti-competitive agreements.", "That also follows from the reading of Sections 21 and 21A of the Competition Act, as argued by the Respondents.", "The issue can be examined from another angle as well.", "If the CCI is allowed to intervene at this juncture, it will have to necessarily undertake an exercise of returning the findings on the aforesaid issues aspects which are mentioned in paragraph 82 above.", "Not only TRAI is better equipped as a sectoral regulator to deal with these jurisdictional aspects, there may be a possibility that the two authorities, namely, TRAI on the one hand and the CCI on the other, arrive at a conflicting views.", "Such a situation needs to be avoided.", "This analysis also leads to the same conclusion, namely, in the first instance it is the TRAI which should decide these jurisdictional issues, which come within the domain of the TRAI Act as they not only arise out of the telecom licenses granted to the service providers, the service providers are governed by the TRAI Act and are supposed to follow various Regulations and directions issued by the TRAI itself.", "This takes us to the next level of the issue, viz. whether TRAI has the exclusive jurisdiction to deal with matters involving anticompetitive practices to the exclusion of CCI altogether because of the reason that the matter pertains to telecom sector? The IDOs have argued that not only TRAI is an expert body which can deal with these issues and has been assigned this function specifically under the TRAI Act, even the anti-competitive aspects of telecom sector are specifically assigned to the TRAI in the TRAI Act itself.", "On that premise the submission is that the TRAI Act is a special legislation which prevails over the provisions of the Competition Act as the Competition Act is general in nature.", "It is also argued that even if the Competition Act is treated as a special statute, between the two special statutes the TRAI Act would prevail as it is a complete code in itself which regulates the telecom sector in its entirety, including the aspects of competition.", "Such a submission, on a cursory glance, may appear to be attractive.", "However, the matter cannot be examined by looking into the provisions of the TRAI Act alone.", "Comparison of the regimes and purpose behind the two Acts becomes essential to find an answer to this issue.", "We have discussed the scope and ambit of the TRAI Act in the given context as well as the functions of the TRAI.", "No doubt, we have accepted that insofar as the telecom sector is concerned, the issues which arise and are to be examined in the context of the TRAI Act and related regime need to be examined by the TRAI.", "At the same time, it is also imperative that specific purpose behind the Competition Act is kept in mind.", "This has been taken note of and discussed in the earlier part of the judgment.", "As pointed out above, the Competition Act frowns the anti-competitive agreements.", "It deals with three kinds of practices which are treated as anti-competitive and are prohibited.", "To recapitulate, these are: (a) where agreements are entered into by certain persons with a view to cause an appreciable adverse effect on competition (b) where any enterprise or group of enterprises, which enjoys dominant position, abuses the said dominant position and (c) regulating the combination of enterprises by means of mergers or amalgamations to ensure that such mergers or amalgamations do not become anti-competitive or abuse the dominant position which they can attain.", "The CCI is specifically entrusted with duties and functions, and in the process empower as well, to deal with the aforesaid three kinds of anti-competitive practices.", "The purpose is to eliminate such practices which are having adverse effect on the competition, to promote and sustain competition and to protect the interest of the consumers and ensure freedom of trade, carried on by other participants, in India.", "To this extent, the function that is assigned to the CCI is distinct from the function of TRAI under the TRAI Act.", "Learned Counsel for the Appellants are right in their submission that the CCI is supposed to find out as to whether the IDOs were acting in concert and colluding, thereby forming a cartel, with the intention to block or hinder entry of RJIL in the market in violation of Section 3(3)(b) of the Competition Act.", "Also, whether there was an anti-competitive agreement between the IDOs, using the platform of COAI.", "The CCI, therefore, is to determine whether the conduct of the parties was unilateral or it was a collective action based on an agreement.", "Agreement between the parties, if it was there, is pivotal to the issue.", "Such an exercise has to be necessarily undertaken by the CCI.", "In Haridas Exports, this Court held that where statutes operate in different fields and have different purposes, it cannot be said that there is an implied repeal of one by the other.", "The Competition Act is also a special statute which deals with anti-competition.", "It is also to be borne in mind that if the activity undertaken by some persons is anti-competitive and offends Section 3 of the Competition Act, the consequences thereof are provided in the Competition Act.", "Section 27 empowers the CCI to pass certain kinds of orders, stipulated in the said provision, after inquiry into the agreements for abuse of dominant position.", "The following kinds of orders can be passed by the CCI under this provision: Orders by Commission after inquiry into agreements or abuse of dominant position.", "- Where after inquiry the Commission finds that any agreement referred to in Section 3 or action of an enterprise in a dominant position, is in contravention of Section 3 or Section 4, as the case may be, it may pass all or any of the following orders, namely: (a) direct any enterprise or association of enterprises or person or association of persons, as the case may be, involved in such agreement, or abuse of dominant position, to discontinue and not to re-enter such agreement or discontinue such abuse of dominant position, as the case may be (b) impose such penalty, as it may deem fit which shall be not more than ten per cent of the average of the turnover for the last three preceding financial years, upon each of such person or enterprises which are parties to such agreements or abuse: Provided that in case any agreement referred to in Section 3 has been entered into by a cartel, the Commission may impose upon each producer, seller, distributor, trader or service provider included in that cartel, a penalty of up to three times of its profit for each year of the continuance of such agreement or ten percent of its turnover for each year of the continuance of such agreement, whichever is higher.", "(c) repealed (d) direct that the agreements shall stand modified to the extent and in the manner as may be specified in the order by the Commission (e) direct the enterprises concerned to abide by such other orders as the Commission may pass and comply with the directions, including payment of costs, if any (f) repealed (g) pass such other order or issue such directions as it may deem fit.", "Provided that while passing orders under this section, if the Commission comes to a finding, that an enterprise in contravention to Section 3 or Section 4 of the Act is a member of a group as defined in Clause (b) of the Explanation to Section 5 of the Act, and other members of such a group are also responsible for, or have contributed to, such a contravention, then it may pass orders, under this section, against such members of the group.", "Moreover, it is within the exclusive domain of the CCI to find out as to whether a particular agreement will have appreciable adverse effect on competition within the relevant market in India.", "For this purpose, CCI is to take into consideration the provisions contained in the Competition Act, including Section 29 thereof.", "Sections 45 and 46 also authorise the CCI to impose penalties in certain situations.", "Obviously, all the aforesaid functions not only come within the domain of the CCI, TRAI is not at all equipped to deal with the same.", "Even if TRAI also returns a finding that a particular activity was anti-competitive, its powers would be limited to the action that can be taken under the TRAI Act alone.", "It is only the CCI which is empowered to deal with the same anti-competitive act from the lens of the Competition Act.", "If such activities offend the provisions of the Competition Act as well, the consequences under that Act would also follow.", "Therefore, contention of the IDOs that the jurisdiction of the CCI stands totally ousted cannot be accepted.", "Insofar as the nuanced exercise from the stand point of Competition Act is concerned, the CCI is the experienced body in conducting competition analysis.", "Further, the CCI is more likely to opt for structural remedies which would lead the sector to evolve a point where sufficient new entry is induced thereby promoting genuine competition.", "This specific and important role assigned to the CCI cannot be completely wished away and the comity between the sectoral regulator (i.e. TRAI) and the market regulator (i.e. the CCI) is to be maintained.", "The conclusion of the aforesaid discussion is to give primacy to the respective objections of the two regulators under the two Acts.", "At the same time, since the matter pertains to the telecom sector which is specifically regulated by the TRAI Act, balance is maintained by permitting TRAI in the first instance to deal with and decide the jurisdictional aspects which can be more competently handled by it.", "Once that exercise is done and there are findings returned by the TRAI which lead to the prima facie conclusion that the IDOs have indulged in anti-competitive practices, the CCI can be activated to investigate the matter going by the criteria laid down in the relevant provisions of the Competition Act and take it to its logical conclusion.", "This balanced approach in construing the two Acts would take care of Section 60 of the Competition Act as well.", "We, thus, do not agree with the Appellants that CCI could have dealt with this matter at this stage itself without availing the inquiry by TRAI.", "We also do not agree with the Respondents that insofar as the telecom sector is concerned, jurisdiction of the CCI under the Competition Act is totally ousted.", "In nutshell, that leads to the conclusion that the view taken by the High Court is perfectly justified.", "Even the argument of the learned ASG is that the exercise of jurisdiction by the CCI to investigate an alleged cartel does not impinge upon TRAIs jurisdiction to regulate the industry in any way.", "It was submitted that the promotion of competition and prevention of competitive behaviour may not be high on the change of sectoral regulator which makes it prone to regulatory capture and, therefore, the CCI is competent to exercise its jurisdiction from the stand point of the Competition Act.", "However, having taken note of the skillful exercise which the TRAI is supposed to carry out, such a comment vis-a-vis TRAI may not be appropriate.", "No doubt, as commented by the Planning Commission in its report of February, 2007, a sectoral regulator, may not have an overall view of the economy as a whole, which the CCI is able to fathom.", "Therefore, our analysis does not bar the jurisdiction of CCI altogether but only pushes it to a later stage, after the TRAI has undertaken necessary exercise in the first place, which it is more suitable to carry out.", "Whether the writ petitions filed before the High Court of Bombay were maintainable? Here comes the scope of judicial interference Under Article 226 of the Constitution.", "As per the RJIL as well as CCI, the High Court could not have entertained the writ petition against an order passed Under Section 26(1) of the Competition Act which was a pure administrative order and was only a prima facie view expressed therein, and did not result in serious adverse consequences.", "It was submitted that the finding of the High Court that such an order was quasi-judicial order is not only erroneous but it is contrary to the law laid down in the case of Steel Authority of India Limited.", "The Respondents, on the other hand, have submitted that the judgment in the above case had no application in the instant case as it did not deal with the sector that is regulated by a statutory authority.", "Moreover, such an order was quasi-judicial in nature and cannot be treated as an administrative order since it was passed by the CCI after collecting the detailed information from the parties and by holding the conferences, calling material details, documents, affidavits and by recording the opinion.", "It was submitted that judicial review against such an order is permissible and it was open to the Respondents to point out that the complete material, as submitted by the Respondents, was not taken into consideration which resulted in an erroneous order, which had adverse civil consequences inasmuch as the Respondents were subjected to further investigation by the Director General.", "We may mention at the outset that in the case of Steel Authority of India Limited, nature of the order passed by the CCI Under Section 26(1) of the Competition Act (here also we are concerned with an order which is passed Under Section 26(1) of the Competition Act) was gone into.", "The Court, in no uncertain terms, held that such an order would be an administrative order and not a quasi-judicial order.", "It can be discerned from paragraphs 94, 97 and 98 of the said judgment, which are as under: The Tribunal, in the impugned judgment, has taken the view that there is a requirement to record reasons which can be express, or, in any case, followed by necessary implication and therefore, the authority is required to record reasons for coming to the conclusion.", "The proposition of law whether an administrative or quasi-judicial body, particularly judicial courts, should record reasons in support of their decisions or orders is no more res integra and has been settled by a recent judgment of this Court in CCT v. Shukla Bros.  : (2010) 4 SCC 785: (2010) 2 SCC (Cri.) 1201: (2010) 2 SCC (L S) 133, wherein this Court was primarily concerned with the High Court dismissing the appeals without recording any reasons.", "The Court also examined the practice and requirement of providing reasons for conclusions, orders and directions given by the quasi-judicial and administrative bodies.", "xx xx xx The above reasoning and the principles enunciated, which are consistent with the settled canons of law, we would adopt even in this case.", "In the backdrop of these determinants, we may refer to the provisions of the Act.", "Section 26, under its different Sub-sections, requires the Commission to issue various directions, take decisions and pass orders, some of which are even appealable before the Tribunal.", "Even if it is a direction under any of the provisions and not a decision, conclusion or order passed on merits by the Commission, it is expected that the same would be supported by some reasoning.", "At the stage of forming a prima facie view, as required Under Section 26(1) of the Act, the Commission may not really record detailed reasons, but must express its mind in no uncertain terms that it is of the view that prima facie case exists, requiring issuance of direction for investigation to the Director General.", "Such view should be recorded with reference to the information furnished to the Commission.", "Such opinion should be formed on the basis of the records, including the information furnished and reference made to the Commission under the various provisions of the Act, as aforereferred.", "However, other decisions and orders, which are not directions simpliciter and determining the rights of the parties, should be well reasoned analysing and deciding the rival contentions raised before the Commission by the parties.", "In other words, the Commission is expected to express prima facie view in terms of Section 26(1) of the Act, without entering into any adjudicatory or determinative process and by recording minimum reasons substantiating the formation of such opinion, while all its other orders and decisions should be well reasoned.", "Such an approach can also be justified with reference to Regulation 20(4), which requires the Director General to record, in his report, findings on each of the allegations made by a party in the intimation or reference submitted to the Commission and sent for investigation to the Director General, as the case may be, together with all evidence and documents collected during investigation.", "The inevitable consequence is that the Commission is similarly expected to write appropriate reasons on every issue while passing an order Under Sections 26 to 28 of the Act.", "There is no reason to take a contrary view.", "Therefore, we are not inclined to refer the matter to a larger Bench for reconsideration.", "It was, however, argued that since the case of Steel Authority of India Limited was not dealing with the telecom sector, which is regulated by the statutory regulator, namely, TRAI under the TRAI Act, that judgment would not be applicable.", "Merely because the present case deals with the telecom sector would not change the nature of the order that is passed by the CCI Under Section 26(1) of the Competition Act.", "However, it raises another dimension.", "Even if the order is administrative in nature, the question raised before the High Court in the writ petitions filed by the Respondents touched upon the very jurisdiction of the CCI.", "As is evident, the case set up by the Respondents was that the CCI did not have the jurisdiction to entertain any such request or Information which was furnished by RJIL and two others.", "The question, thus, pertained to the jurisdiction of the CCI to deal with such a matter and in the process the High Court was called upon to decide as to whether the jurisdiction of the CCI is entirely excluded or to what extent the CCI can exercise its jurisdiction in these cases when the matter could be dealt with by another regulator, namely, the TRAI.", "When such jurisdictional issues arise, the writ petition would clearly be maintainable as held in Barium Chemicals Limited and Anr.", "v. Company Law Board and Ors.", " : AIR 1967 SC 295 and Carona Limited.", "In Carona Limited, this Court held as under: The learned Counsel for the Appellant company submitted that the fact as to paid-up share capital of rupees one crore or more of a company is a jurisdictional fact and in absence of such fact, the court has no jurisdiction to proceed on the basis that the Rent Act is not applicable.", "The learned Counsel is right.", "The fact as to paid-up share capital of a company can be said to be a preliminary or jurisdictional fact and said fact would confer jurisdiction on the court to consider the question whether the provisions of the Rent Act were applicable.", "The question, however, is whether in the present case, the learned Counsel for the Appellant tenant is right in submitting that the jurisdictional fact did not exist and the Rent Act was, therefore, applicable.", "Stated simply, the fact or facts upon which the jurisdiction of a court, a tribunal or an authority depends can be said to be a jurisdictional fact.", "If the jurisdictional fact exists, a court, tribunal or authority has jurisdiction to decide other issues.", "If such fact does not exist, a court, tribunal or authority cannot act.", "It is also well settled that a court or a tribunal cannot wrongly assume existence of jurisdictional fact and proceed to decide a matter.", "The underlying principle is that by erroneously assuming existence of a jurisdictional fact, a subordinate court or an inferior tribunal cannot confer upon itself jurisdiction which it otherwise does not posses.", "In Halsburys Laws of England (4th Edn.), Vol. 1, Para 55, p. 61 Reissue, Vol.", "1(1), Para 68, pp.", "114-15, it has been stated: Where the jurisdiction of a tribunal is dependent on the existence of a particular state of affairs, that state of affairs may be described as preliminary to, or collateral to the merits of, the issue.", "If, at the inception of an inquiry by an inferior tribunal, a challenge is made to its jurisdiction, the tribunal has to make up its mind whether to act or not and can give a ruling on the preliminary or collateral issue but that ruling is not conclusive.", "The existence of a jurisdictional fact is thus a sine qua non or condition precedent to the assumption of jurisdiction by a court or tribunal.", "xx xx xx It is thus clear that for assumption of jurisdiction by a court or a tribunal, existence of jurisdictional fact is a condition precedent.", "But once such jurisdictional fact is found to exist, the court or tribunal has power to decide adjudicatory facts or facts in issue.", "Thus, even when we do not agree with the approach of the High Court in labeling the impugned order as quasi-judicial order and assuming jurisdiction to entertain the writ petitions on that basis, for our own and different reasons, we find that the High Court was competent to deal with and decide the issues raised in exercise of its power Under Article 226 of the Constitution.", "The writ petitions were, therefore, maintainable.", "Whether the High Court could give its findings on merits? Once we hold that the order Under Section 26(1) of the Competition Act is administrative in nature and further that it was merely a prima facie opinion directing the Director General to carry the investigation, the High Court would not be competent to adjudge the validity of such an order on merits.", "The observations of the High Court giving findings on merits, therefore, may not be appropriate.", "At the same time, since we are upholding the order of the High Court on the aspect that the CCI could exercise jurisdiction only after proceedings under the TRAI Act had concluded attained finality, i.e. only after the TRAI returns its findings on the jurisdictional aspects which are mentioned above by us, the ultimate direction given by the High Court quashing the order passed by the CCI is not liable to be interfered with as such an exercise carried out by the CCI was premature.", "The result of the discussion would be to dismiss these appeals, subject to our observations on certain 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{"id": "COM_Shree_Cement_Limited__vs__Builders_Association_of_TA2015171215164519311COM615014", "text": ["section Singhvi, J. (Chairman) This appeal is directed against order dated 30.07.2012 passed by the Competition Commission of India (for short the Commission) in Case Number RTPE 52/2006, whereby the appellant was held guilty of acting in violation of Section 3(3)(a) and 3(3)(b) read with Section 3(1) of the Competition Act, 2002 (for short, the Act) and penalty of Rs. 397.15 Crores was imposed on it.", "The Commission further directed the appellant to cease and desist from indulging in any activity relating to agreement, understanding or arrangement of prices, production and supply of cement in the market.", "A perusal of the impugned order shows that after going through the press reports published in Business Daily and Economic Times dated 09.05.2006 and 29.06.2006 regarding increase in cement prices and on receipt of letter dated 16.09.2006 of the Builders Association of India (BAI), which was forwarded to it by the Ministry of Company Affairs on 29.06.2006, the erstwhile Monopolies and Restrictive Trade Practices Commission (for short MRTP Commission) took suo moto cognisance and initiated investigation and entrusted the matter to the Director General (Investigation and Registration).", "The latter asked all the cement manufacturing companies to furnish their comments as well as break-up of cost of cement per metric ton including state levies.", "BAI was also asked to substantiate its allegation regarding increase in prices.", "41 cement manufacturers submitted replies and denied the allegation that they had formed a cartel.", "Before the Director General (Investigation and Registration) could complete the investigation, the Monopolies and Restrictive Trade Practices Act, 1969 was repealed by Section 66 of the Act and RTPE Number 52/2006 was transferred to the Commission.", "The Commission considered the matter in its meeting held on 24.06.2010 and passed an order under Section 26(1) whereby the Director General was directed to conduct an investigation into the matter.", "After conducting investigation, the Director General submitted report dated 31.05.2011 with the finding that the appellant had acted in contravention of Section 3(3)(a) and 3(3)(b) read with Section 3(1) of the Act.", "In the meanwhile, an information was filed by BAI under Section 19(1)(a) alleging formation of cartel by 11 cement manufacturing companies and Cement Manufacturers Association.", "The same was registered as Case Number 29/2010 and the Commission passed an order under Section 26(1) for an investigation by the Director General.", "On the basis of the investigation report submitted in Case Number 29/2010, the Commission passed order dated 20.06.2012 and imposed penalty amounting to Rs. 6,316.59 Crores on the cement manufacturers and the Association.", "The Commission largely relied upon the findings recorded in Case Number 29/2010 and reiterated the finding that the appellant had violated Section 3(3)(a) and 3(3)(b) read with Section 3(1) of the Act and imposed the penalty to which reference has been made hereinabove.", "The appellant has challenged the impugned order on several grounds, two of which are that the suo-moto investigation initiated by the MRTP Commission could not have been continued by invoking Section 66 of the Act and clubbed with the investigation conducted by the Director General in Case Number 29/2010 and in any case, the findings recorded in the latter case could not have been relied upon for holding the appellant guilty of violating Section 3 of the Act and further that the Chairperson of the Commission, who was not present in the meetings held on 21st, 22nd and 23rd February, 2012 and did not have the benefit of hearing the arguments of the advocates representing the parties could not have taken part in the decision-making process and passed the impugned order.", "By a separate order passed today, we have allowed Appeal Number 105 of 2012 Lafarge India Limited v. Competition Commission of India and Another and connected matters and set-aside order dated 20.06.2012 passed by the Commission.", "The operative portion of that order reads as under: In the result, the appeals are allowed.", "The impugned order is set aside and the matter is remitted to the Commission for fresh adjudication of the issues relating to alleged violation of Sections 3(3) (a) and 3(3)(b) read with Section 3(1) of the Act by the appellants.", "The appellant shall be entitled to withdraw the amount deposited by them in compliance of the interim order passed by the Tribunal.", "The Commission shall hear the advocates representatives of the appellants and BAI and pass fresh order in accordance with law.", "We hope and trust that the Commission shall pass fresh order as early as possible but within a period of three months from the date, which may be notified after receipt of this order.", "The parties shall be free to advance all legally permissible arguments.", "They may rely upon the documents, which formed part of the record of the Jt.", "DG or which may have been filed by them before the commencement of hearing on 21.02.2012.", "The parties shall also be free to press the applications already filed before the Commission.", "However, no application, which may be filed hereinafter for cross-examination of the persons, whose statements were recorded by the Jt.", "DG or for any other purpose shall be entertained by the Commission.", "As a sequel to the above, I.A. Number 36/2013 filed by the appellant in Appeal Number 105/2012 for review of order dated 17th May, 2013 is disposed of as infructuous.", "Before parting with this order, we consider it necessary to mention that we have referred to various provisions of the Act (un-amended and amended) and Regulations and analysed the same to emphasize the proceedings held under the Act and the Regulations should be just and fair and in consonance with the principles of natural justice as engrafted in the Act and the Regulations.", "We also feel that the time has come for the Commission to evolve a comprehensive protocol and lay down guidelines for conducting investigation inquiry in consonance with the rules of natural justice.", "It should be realized that much of the appellate litigation would be obviated if a just and fair procedure is adopted for conducting investigation and inquiry and passing of orders under Section 27, 28 and the provisions contained in Chapter VI of the Act.", "Since the impugned order is mainly founded on the findings recorded in Case Number 29 of 2010 and the order passed in that case under Section 27 of the Act has been set-aside on the ground of violation of principle that only one who hears can decide, the order under challenge is also set aside in similar terms.", "The detailed reasons recorded in the order passed today in Appeal Number 105 of 2012 and connected matters and the directions contained therein shall be read as part of this order."], "expert_1": {"primary": ["RulingByLowerCourt", "RulingByLowerCourt", "Fact", "Fact", "Fact", "Fact", "Fact", "Fact", "Fact", "Fact", "Fact", "RulingByLowerCourt", "RulingByLowerCourt", "ArgumentPetitioner", "Fact", "Fact", "Fact", "Fact", "Fact", "Fact", "Fact", "Fact", "Fact", "Fact", "Fact", "Fact", "Fact", "Fact", "Fact", "Fact", "RatioOfTheDecision", "RulingByPresentCourt"], "secondary": ["None", "None", "None", "None", "None", "None", "None", "None", "None", "None", "None", "None", "None", "None", 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{"id": "HC_State_of_Mizoram_vs_Competition_Commission_of_IndiGH201424121422183488COM227556", "text": ["Lanusungkum Jamir, J. 1 .", "W.P.(C) Number 24 of 2013, W.P.(C) Number 76 of 2013 and W.P.(C) Number 90 of 2013 involves the same question of facts with similar reliefs sought, these petitions are being disposed by this common judgment and order.", "The Government of Mizoram invited Expression of Interest (EOI) through the Director, Institutional, Finance State Lottery on 20.12.2011 for appointment of Lottery Distributors and Selling Agents for the lotteries organized by the Government of Mizoram.", "The Mizoram Lotteries (Regulation) Rules, 2011 was framed in terms of the Lotteries (Regulation) Act, 1998.", "Pursuant to the EOI of 20.12.2011, four firms companies were selected as distributors to operate lotteries as per the provisions of the Lotteries (Regulation) Act, 1998 and the Mizoram Lotteries (Regulation) Rules, 2011.", "M section Tamarai Technologies Private Limited (who is the respondent Number 3 in all the 3 writ petitions) filed an information complaint before the Competition Commission of India under Section 19(1)(a) of the Competition Act, 2002 alleging that the Government of Mizoram (petitioners in W.P.(C) Number 24 of 2014) had violated the provisions of Section 4 of the Competition Act, 2002 and that M section Teesta Distributors, M section N.V. International (petitioner in W.P.(C) Number 76 of 2013) and M section Summit Online Trades Solutions Private Limited (petitioners in W.P.(C) Number 90 of 2013) are directly or indirectly associated with each other and have been involved in collusive bidding by quoting identical rates for Online and Paper Lotteries against EOI dated December 20, 2011 and thereby forming a cartel with regard to selection of distributors in lottery business of the State of Mizoram.", "On receipt of the information complaint, the Competition Commission of India passed an order dated 7.6.2012 under Section 26(1) of the Competition Act, 2002 where it had formed an opinion that there was a prima facie case about the existence of a cartel amongst the bidders and there was contravention of the provision of Section 3(1) read with Section 3(3) of the Act and the Director General was directed to cause an investigation into the matter and to submit a report within a period of 60 (sixty) days from the receipt of the order dated 7.6.2012.", "In the order dated 7.6.2012, the Competition Commission of India was also of the opinion that no case was made out for violation of the provision of Section 4 of the Competition Act of 2002 (hereinafter the Act of 2002).", "The Director General, after completion of the investigation submitted its report before the Competition Commission of India on 17.1.2013 wherein all the allegations leveled against the 4 (four) firms companies were found to be correct and came to a finding that they had indulged in bid rigging by forming a cartel and thereafter, came to the conclusion that there was violation of Section 3(1) read with Section 3(3) of the Competition Act of 2002.", "Thereafter the Competition Commission on 12.2.2013 after considering the report of the Director General, issued an order dated 12.2.2013 in case Number 24/2012 directing the respondents therein to file their reply objection within 2 (two) weeks of receipt of the record.", "It further decided to hear the parties on 20.3.2013 at 10:30 AM.", "Being aggrieved, the aforesaid 3 (three) writ petitions have been filed.", "Heard Mr. B. Deb, learned Advocate General, Mizoram in W.P.(C) Number 24 of 2014, Mr. I. Lahiri in W.P.(C) Number 76 of 2013 as well as Mr. section Dutta in W.P.(C) Number 90 of 2012 for the petitioners.", "Also heard Mr. Vijay Kumar Singh, Deputy Director (Law) and Mr. A.H. Barbhuiya, learned CGC for the Competition Commission of India who are arrayed as respondent Numbers 1 2 in all the writ petitions and Mr. A.R. Malhotra, learned counsel for the respondent Number 3 Tamarai Technologies Private Limited (informant complainant) in all the 3 (three) writ petitions.", "W.P.(C) Number 24 of 2013 Mr. B. Deb, the learned Advocate General, Mizoram submits that the respondent Number 3 had not participated in the EOI invited by the petitioners nor did they raise any objection with regard to the procedure of inviting offers before the appropriate authorities and remained a silent spectator on the entire issue.", "The petitioners, therefore, on the basis of the offers received from the various bidders proceeded with the bidding process and decided to execute agreements with the selected bidders on the basis of the offers received in accordance with the terms and conditions as notified in the EOI dated 20.12.2011.", "The respondent Number 3 was at liberty to participate in the bidding process but did not do so on its own volition but have instead proceeded before the respondent Number 1 i.e., the Competition Commission of India with its complaint information under Section 19(1) of the Act of 2002 which was registered as Complaint Case Number 24 of 2012.", "On the basis of the complaint made by the respondent Number 3, the respondent Number 1 had ordered an enquiry on 7.6.2012 under Section 26(1) of the Act of 2002.", "While passing the order dated 7.6.2012, the respondent Number 1 had made observation stating that there seems to be a prima facie case of contravention of the provision of Section 3(1) read with Section 3(3) of the Act.", "The respondent Number 1 also observed that no case was made out against the petitioners as far as Section 4 of the Act is concerned.", "The respondent Number 1 also observed that the role of present petitioners was to regulate and monitor the business of lottery in the State of Mizoram in discharge of its power and functions as envisaged under the Lotteries (Regulation) Act and Mizoram Lotteries (Regulation) Rules, 2010 and that the petitioners cannot be considered as an enterprise or group under the Act.", "Therefore, there was no violation of the provisions of the Section 4 of the Act.", "The respondent Number 1, however, was of the opinion that there existed a prima facie case against the opposite parties 1 to 4 and the respondent Number 2 was therefore directed to cause an investigation.", "Basing on the order dated 7.6.2013, the respondent Number 2 caused an investigation and in its report had come to the finding that there was renegotiation of prizes of 4 (four) opposite parties before appointing all of them as its selling agents which confirms that there was tacit understanding between the Government of Mizoram Director IF SL and all 4 (four) parties.", "The DG report also came to the finding that it was a case of not only bid rigging but also a case of collusive bidding and therefore, it came to the conclusion that all 4 (four) opposite parties have colluded together and has violated the provisions of Section 3(3)(a) and 3(3)(d) of the Act.", "Learned Advocate General, Mizoram also submits that the respondent Number 3 i.e. M section Tamarai Technologies Private Limited being a defaulter to the tune of more than 2 crores, the petitioners had filed a money suit being Money Suit Number 64 of 2012 against respondent Number 3 which is still pending before the learned trial Court.", "He also submits that clause 8 of the Expression of Interest provides that firms companies, etc.", "or its subsidiary company having outstanding liabilities towards sale proceeds on lotteries, prizes money or any other dues shall be required to clear of such dues if selected for appointment as distributor selling agents of Mizoram State Lotteries before signing of agreement.", "The respondent Number 3, therefore, having dues to the petitioners to the tune of more than 2 crores had not participated in the Expression of Interest and the complaint filed before the respondent Number 1 was just to stall the bid process with ulterior motives.", "When the respondent Number 1 was of the opinion that there was no violation of Section 4 of the Act of 2002 by the petitioners there was no reasons for the respondent Number 2 to have indicated in its finding that there was bid rigging and collusion between the parties.", "The direction of the respondent Number 1 to the respondent Number 2 was also to cause an investigation against the opposite parties 1 to 4 and not against the present petitioners.", "Therefore, the respondent Number 2 had travelled beyond the reference made by the respondent Number 1, more particularly, when the respondent Number 1 had found nothing wrong on the action of the petitioners.", "Learned Advocate General, while referring to C.M. Appl.", "Number 101/2013 filed by the petitioners submits that the respondent Number 1 has also passed an order dated 11.6.2013 wherein the representative of the respondent Number 1 was authorized to make a statement before this Court that the respondent Number 1 does not intend to pass any order against the State.", "As the respondent Number 1 has passed the order dated 11.6.2013, it should have therefore, immediately resorted to Section 26(2) of the Act and thereafter, close the matter forthwith.", "This has not been done by the respondent No. 1 till date and therefore, the report of the respondent Number 2 deserves interference by this Court.", "In the facts and circumstances of the case, he submits that the present writ petition be allowed by quashing and setting aside the DG report submitted on 17.1.2013.", "W.P.(C) Number 90 of 2013 Mr. section Dutta, learned counsel appearing for the petitioners submits that in the Expression of Interest issued on 20.12.2012 by the Government of Mizoram, 4 (four) parties participated amongst which the present petitioners were also an interested party.", "The respondent Number 3/informant complainant did not participate in the said Expression of Interest.", "The learned counsel for the petitioners submits that the present writ petition is primarily a challenge on the applicability of the Competition Act of 2002 (hereinafter the Act of 2002).", "He submits that the term lottery has been defined under Section 2(b) of the Lotteries (Regulation) Act, 1998 (hereinafter the Act of 1998).", "Under Section 2(b) lottery has been defined as a scheme for distribution of prizes by lots or draw to other persons participating in the chance or prize by purchasing tickets.", "Section 4(j) of the Act of 1998 provides that State may organize, conduct or promote a lottery subject to the condition that the number of bumper draws of a lottery shall not be more than 6 (six) in a calendar year.", "He submits that under Rule 2(c) of the Lotteries (Regulation) Rules, 2010 (hereinafter the Rules of 2010) defines distributor or selling agent to be an individual or a firm or a body corporate or other legal entity under law so appointed by the organizing State through an agreement to market and sale lotteries on behalf of the organizing State.", "He further submits that Rule 3 of the Rules of 2010 provides for organization of lottery by the State Government and Rule 10 provides that the organizing State shall charge a minimum amount of 5 lakhs per draw for bumper draw of lottery and for other forms of lottery a minimum amount of 10,000/- per draw.", "He, therefore, submits that business of lottery is being statutorily regulated wherein it is the State Government who is the organizing State and the distributors agents are appointed by the organizing State by way of an agreement to market and sell lotteries on behalf of the organizing State.", "He also submits that under the Act of 1998 and the Rules of 2010, all States are to frame rules and accordingly, the Mizoram Lottery Regulation Rules, 2011 has been framed.", "Mr. section Dutta, learned counsel submits that the Act of 2002 was enacted by repealing the Monopolies and Restrictive Trade Practices Act, 1969 with the object for the establishment of a Commission to prevent practices having adverse effect on competition, to promote and sustain competition markets, to protect the interest of consumers to ensure freedom of trade carried on by other participants in markets.", "He submits that lottery is not a trade or commerce and places reliance in the cases of R. Enterprises vs U.P. Ors.", "reported in  : (1999) 9 SCC 700 and Khoday Distilleries Limited Ors.", "vs State of Karnataka Ors.", "reported in  : (1995) 1 SCC 574.", "He submits that lottery does not fall under the expression Trade inasmuch as it does not involve sale of goods as the lottery tickets is a mere piece of paper nor does the sale of lottery ticket have an effect of transfer of right and relies in the case of Sunrise Associates vs Govt.", "of NCT of Delhi Ors.", "reported in  : (2006) 5 SCC 603.", "He submits that holding of lottery falls within the doctrine of res extra commercium and therefore, rendering of service of distribution or acting as agent of the organizing state does not fall under the ambit of the scope of service as provided under the Act of 2002.", "He therefore relies in the case of Union of India Ors.", "vs Martin Lottery Agencies Limited reported in  : (2009) 12 SCC 209.", "Mr. section Datta also submits that the complaint made by the respondent Number 3 under Section 19(1)(a) of the Act of 2002 also alleges cartel which is defined under Section 2(c) therein.", "He submits that in the case in hand, the question of formation of a cartel does not arise inasmuch as all parties participating in the Expression of Interest had quoted rates as prescribed under the Rules of 2010.", "Further, the conclusion of the respondent Number 2 as regards identical bidding is not correct inasmuch as the 4 (four) parties that had participated in the tender had bidded for different forms of lotteries and the present petitioner i.e. Summit Online Trade Solutions Private Limited had bidded for Online Lottery with 10,000/- per draw.", "Though E-COOL Gaming Solutions and NV International Marketing have bidded for Online Lottery their bids were different than that of the petitioner and the other party i.e., Teesta Distributors had bidded for paper lottery which is totally a different product Under such circumstances, the respondent Number 2 could not have, under any circumstances, come to the finding that there was identical bidding and there was a cartel amongst the 4 (four) parties.", "Therefore, the finding at paragraph XVI by the respondent Number 2 is totally absurd and without any basis.", "In this connection, he also places reliance in the case of Union of India Ors.", "vs Hindustan Development Corporation Ors.", "reported in  : (1993) 3 SCC 499.", "He further submits that the action of the respondent Number 1 alleging violation of the Act of 2002 is without jurisdiction inasmuch as lotteries is a subject which is governed by the statutory enactments such as the Act of 1998 and the Rules of 2002.", "The subject matter of consideration under Case Number 24 of 2012 before the respondent No. 1 relating to marketing of lotteries is therefore beyond the purview of the Act of 2002.", "Further submission is made that the Act of 2002 is a general enactment enacted for the purpose ensuring fair competition in the trade of free commodities.", "Therefore, the provisions of the Act of 2002 cannot be invoked in respect of a regulated commodity as the said regulated commodities is controlled and there is no freedom in marketing or purchasing of lotteries.", "The Act of 2002 cannot be made applicable to marketing of lotteries which operates under the stringent control of the Government.", "The respondent Number 3 who had not participated in the bidding nor has demonstrated any reservation as regards the methodology adopted in publication of the Expression of Interest dated 20.12.2011, inasmuch as the respondent Number 3 does not stand anywhere in the scene of submission of bids pursuant to the EOI dated 20.12.2011.", "Therefore, it has no locus standi to even make a complain as the respondent Number 3 is in no way an aggrieved party.", "The indirect attempt on the part of the respondent Number 3 to thwart the whole process by taking recourse to respondent Number 1 is therefore, ill motivated and tainted with mala fide.", "He also submits that the action of respondent Nos. 1 and 2 apart from being illegal and without jurisdiction also suffers from a total non-application of mind.", "Further reliance has been placed in the cases of:- Somesh Tiwari vs Union of India Ors.", "reported in  : (2009) 2 SCC 592 Secretary of the Governor of Assam vs Madan Chandra Mahanta reported in 1997 (3) GLT 461 Dhanani Shoes Limited Ors.", "vs State of Assam Ors.", "reported in  : 2008 (3) GLT 361 Commissioner of Taxes, Assam vs Dhanani Shoes Limited (M section) Anr.", "reported in  : 2012 (2) GLT 726 and Tashi Delek Gaming Solutions Limited Anr.", "vs State of Karnataka Ors.", "reported in  : (2006) 1 SCC 422.", "It is further submitted that the word any person used under Section 19 of the Act of 2002 has been defined under Section 2(1) of the said Act where it has been given a very wide scope.", "However, he submits that despite such a wide scope given to the term any person, the same would have to be considered upon the context and the subject matter of the Act.", "In the present case, as lotteries do not come under the definition of goods, trade or service, the word any person would not necessarily mean any person involved in normal trade or providing service.", "Therefore, the complaint of the respondent Number 3 could not have been entertained by the respondent No. 1 and places reliance in the case of Raj Kumar Shivhare vs Assistant Director, Directorate of Enforcement Anr.", "reported in  : (2010) 4 SCC He, therefore, submits that under the facts and circumstances of the case, the impugned order dated 7.6.2012, the report of the respondent Number 2 dated 14.1.2013 and the order dated 12.2.2013 be set aside and quashed.", "W.P.(C) Number 76 of 2013 Mr. I. Lahiri, the learned counsel appearing for the petitioner while adopting the submissions made by Mr. section Datta, learned counsel appearing for the petitioner in P.(C) Number 90 of 2013 submits that the footing of the present petitioners are totally different inasmuch as the petitioners had a long association with the State of Mizoram in the business of lotteries.", "However, things fell out between the petitioner and the State of Mizoram and an arbitration proceeding was drawn out between the parties in the year 2003 being Arbitration Proceeding Number 1 of 2003.", "The proceedings carried on for a very long period and therefore, the parties to the said proceeding decided to amicably settle the matter and accordingly a meeting was held on 7.12.2009.", "The matter was finally settled in a meeting held on 22.7.2010 between the parties where the State of Mizoram accepted its liabilities of 2.89 crores and the parties agreed under the Rules of 2010 that if and when the State Government decided to reopen lottery business, the petitioners would be one amongst the successful bidders at the highest accepted bid and further that 24 lotteries shall be distributed to successful bidders including the petitioners for implementation of the negotiated settlement.", "It was also decided in the said meeting that the number of draws to be given to the petitioners would not be less than 25 of the total number of draws permitted by rules per day.", "On the basis of such agreement, the arbitration proceedings were terminated on 12.2.2011.", "This being the position, the petitioners were formally assured for a minimum of 25 of the draws to be held per day by the State of Mizoram.", "The State of Mizoram initiated a fresh Expression of Interest on 9.3.2011.", "However, the same did not materialize due to various litigations and finally the Expression of Interest was made on 20.12.2011.", "The petitioners, being a natural choice, pursuant to the agreement made on 22.7.2010, participated in the said bid process and was automatically awarded 25 of the draws to be held per day.", "Mr. I. Lahiri, the learned counsel for the petitioner, therefore, submits that in the background of the history between the petitioner and the State of Mizoram, the question of having a cartel or bid rigging does not arise under any circumstances more particularly, when the agreement dated 22.7.2010 existed.", "He also submits that the respondent Number 3 had never participated in the Expression of Interest nor raised any objections for the working modalities of the same.", "However, it had proceeded with the complaint before the respondent Number 1.", "The same would show that the said complaint was actuated with malice.", "As the respondent Number 3 had not participated in the Expression of Interest, it has no locus standi to even make the complaint before the respondent Number 1.", "Therefore, the allegations against the petitioners is without any merit, as the petitioners are assured of a contract of 25 of the draws at the rate quoted by the highest bidder and therefore, any rates quoted by the petitioner would have no relevance.", "The respondent Number 2 had also lost sight of the fact that the petitioners had ceased to have any business in lotteries and its participation in the tender was only to recover the dues from the State of Mizoram.", "In the facts and circumstances, he also submits that the impugned report of the respondent Number 2 dated 17.1.2013 and the proceedings being Case Number 24 of 2013 before the respondent Number 1 be set aside and quashed.", "Countering the aforesaid 3 (three) writ petitions, Mr. Vijay Kumar Singh, Deputy Director (Law), appearing for the Competition Commission of India respondent Number 1 as well as Mr. A.H. Barbhuiya, learned CGC for the respondent Number 1 appearing for respondent Number 1 in the later stage submits that the respondent Number 1 received information from M section Tamarai Technologies Private Limited under Section 19(1)(a) of the Act of 2002 on 16.5.2012, which was registered as Case Number 24 of 2012.", "The information pertained to alleged anti-competitive behavior by certain opposite parties in the matter of Expression of Interest floated by the Government of Mizoram on 20.12.2011 for appointment of lottery distributors and selling agents for the lotteries organized by the Government of Mizoram.", "On 7.6.2012, the respondent Number 1 came to a prima facie opinion that there was a cartel amongst the opposite parties 1 to 4 in quoting the same rates for the Expression of Interest floated by the opposite Party No. 5 (Government of Mizoram) which was in contravention of the Section 3 of the Act of 2002.", "Accordingly, a direction was given to the respondent Number 2 to conduct investigation and submit its report.", "The respondent Number 1 while issuing the direction for investigation to the respondent Number 2 also observed that no prima facie case for abuse of dominant possession under Section 4 of the Act of 2002 was made out against the State of Mizoram.", "It is submitted that there are no adverse civil consequences against any party flowing from the said order and the subsequent report of the respondent Number 2 until the respondent Number 1 decides the matter finally and therefore, the 3(three) writ petitions are not maintainable and places his reliance in the case of Competition Commission of India vs Steel Authority of India Limited reported in  : (2010) 10 SCC 744.", "He also submits that there is no judicial review against any tentative decisions or inter departmental communications which at best constitutes a step in the process of taking a final decision and relies in the case of State of Orissa vs MESCO Steels Limited Ors.", "reported in  : (2013) 4 SCC 340.", "It is further submitted that the present writ petitions should not be entertained by this Court as the same are not maintainable inasmuch as it is only in the stage of show cause notice without any final adjudication.", "Reliance has been placed in the case of Executive Engineer, Bihar State Housing Board vs Romesh Kumar Singh Ors.", "reported in  : (1996) 1 SCC 327 and in the case of Kingfisher Airline Limited vs Competition Commission of India passed by the Bombay High Court by judgment dated 31.3.2010 and also the judgment dated 4.2.2013 passed by the Allahabad High Court in the case of Narmata Marketing Private Limited vs CCI Ors.", "It is submitted that the petitioners have alternative remedy under Section 53(B) of the Act of 2002.", "Therefore, when there is alternative remedy available to the petitioners, the present writ petitions are not maintainable except on the ground of jurisdiction, which is very limited, and which have also not been taken as a ground by the petitioners.", "Therefore, there is no merit in the present writ petitions and the same should not be entertained by this Court.", "It is also submitted that the Commission initiates a case on the basis of information received under the Act of 2002.", "If the respondent Number 1 is of the opinion that there is a prima facie case, it refers the case to the respondent Number 2 for investigating into the matter under Section 26(1) of the Act of 2002.", "In the event, no prima facie case is found by the respondent Number 1, it closes the case under Section 26(2) of the Act of 2002.", "However, when reference is made to respondent Number 2 for investigation, after receipt of the report from the respondent Number 2, the report is considered and thereafter parties are heard for passing final orders.", "As the present writ petition has been filed at the stage when the respondent Number 2 has just submitted its report, the respondent Number 1 is yet to hear the parties and take a decision and therefore, the parties instead of approaching this Court should place their case before the respondent Number 1.", "Reliance has been placed in the order dated 12.5.2011 passed by the Competition Commission of India in Case Number 15 of 2010 in the case of Jupiter Gaming Solutions Private Limited vs Government of Goa Another.", "Further submission has been made that the Mizoram Lotteries (Regulation) Rules, 2011 and the Competition Act of 2002 are not in conflict inasmuch as the said Rules of 2011 are meant for regulating the lottery sector whereas the Act of 2002 has been enacted to prevent practices having adverse effect on competition.", "In the present case, the respondent Number 1 is not examining the vires of the Expression of Interest under the Lottery Regulation but is investigating into the alleged bid rigging activity which amounts to violation of Section 3(3)(d) of the Act of 2002.", "Reference has also been made to Sections 60, 61 and 62 of the Act of 2002 and reliance placed in the decision of the Bombay High Court in the case of Amir Khan Productions Private Limited vs Union of India.", "The allegation made by the petitioners that the respondent has engaged in a roving enquiry and is harassing them is denied and such allegations are not maintainable as has been held in the case of Amir Khan (supra).", "It is also submitted that the respondent Number 2 had completed its investigation within time after having being given extension of time on 28.8.2012, 23.10.2012 and 13.12.2012 by the respondent Number 1 which is permissible under the Act of 2002.", "The observation of the respondent Number 1 under Section 26(1) was merely a prima facie view as regards Section 4 of the Act of 2002 as regards the State of Mizoram in its capacity of regulating the lottery trade.", "Therefore, the respondent Number 1 has passed an order dated 11.6.2003 expressing its intention not to pass an order against the State of Mizoram.", "As such, no further grievance survives in so far as the W.P.(C) Number 24 of 2013 i.e. writ petition filed by the State of Mizoram is concerned.", "The main purpose of filing the writ petitions is to delay and defeat the enquiry initiated against the alleged anticompetitive practices in the present case.", "Mr. A.R. Malhotra, learned counsel appearing for the respondent Number 3 submits that the petitioners have not come with clean hands before this Court as they have failed to disclose the complete and correct facts that are relevant for deciding the present case in hand.", "He submits that the respondent Number 3 was appointed as a Selling Agent for the Mizoram State Lottery by an agreement dated 28.11.2008 between the Government of Mizoram and the respondent Number 3.", "In September, 2009, the Government of Mizoram unilaterally decided to modify the terms of the agreement which was challenged by the respondent Number 3 in W.P.(C) Number 10 of 2010.", "This Court, after being satisfied, had issued an interim order dated 20.6.2010 which was subsequently made absolute till disposal of the writ petition by order dated 2.3.2010.", "The State of Mizoram with mala fide intention had therefore issued a Notification dated 18.3.2010 imposing a ban on organization, conduct, promote and sale of lottery tickets within the State of Mizoram.", "Thereafter, without even withdrawing the said Notification dated 18.3.2010 by which there was a ban on lottery in the State of Mizoram, the Government of Mizoram had floated NTT for appointment of Selling Agent Distributors on 13.12.2010.", "In response to the said NIT dated 9.3.2011, several parties submitted their tenders.", "However, the State of Mizoram realize its mistake and therefore the Notification dated 3.1.2011 was issued withdrawing the earlier Notification dated 18.3.2010.", "The NIT dated 13.12.2010 was accordingly abandoned and a fresh NIT was issued on 9.3.2011.", "Subsequently, another NIT was floated on 20.12.2011 wherein only 4 (four) tenderers submitted their tenders wherein all the 4 (four) tenderers quoted unreasonably low rates and there was a clear unanimity in the pattern of the rates quoted by them.", "The respondent Number 3 in their counter-affidavit has shown the rates quoted by the 4 (four) tenderers as under:- Mr. A.R. Malhotra, learned counsel appearing for the respondent Number 3 submits that on a bare perusal of the rates quoted by the 4 (four) tenderers what emerges is that the statutory mandate of anti-corruption law have been floated and as the respondent Number 3 being actively involved in the business of lottery had submitted a complaint before the respondent Number 1 under Section 19 of the Act of 2002 and a copy of the same was also forwarded to the Government of Mizoram.", "It was on the basis of the complaint that the respondent Number 2 was directed to cause an enquiry who accordingly submitted its report on 17.1.2013.", "The investigation report was sent to the parties for enabling them to file replies objections wherein the opposite parties were also directed to file their profit and loss account, balance sheets and turnover for the 3 (three) financial years.", "Mr. A.R. Malhotra, learned counsel appearing for the respondent Number 3 also raised preliminary objections stating that W.P.(C) Number 24 of 2013 was filed through the Secretary to the Government of Mizoram, Finance Department and the Director, Institutional, Finance and State Lottery, Mizoram, Aizawl as petitioners 1 and 2.", "However, no authorization has been given by the petitioner Number 2 in the affidavit by affirming the affidavits signed by the petitioner Number 1 and therefore the writ petition is not maintainable.", "I have heard the learned counsel appearing for the parties.", "The respondents Number 1 and 2 in all the writ petitions has confined the arguments to the stage of show cause notice and has not entered into the merit of the case.", "The petitioners in W.P.(C) Number 76/2013 have also raised the issue of the applicability of the Act of 2002.", "This Court therefore intends to first consider the issue of applicability of the Act and whether the respondent Number 1 could have entertained the complaint information given by the respondent Number 3.", "The Act of 2002 aims to prevent practices having adverse effect on competition to promote and sustain competition in market.", "It also aims to protect the interest of the consumer and to ensure freedom of trade carried on by the participants in the market.", "The first issue is whether lotteries can be considered as a trade under the Act of 2002.", "Under the Lotteries Regulation Act of 1998, lottery has been defined as a scheme for distribution of prizes by lots or chance to those persons participating in the chances of a prize by purchasing tickets.", "Unlike any other trade and commerce, the business of lottery is being governed strictly in terms of the Act of 1998 and the Regulations and Rules framed thereunder.", "In the case of B.R. Enterprises (Supra), the Honble Supreme Court has laid the ratio that the difference between gambling and trade is that gambling inherently contains a chance with no skill, while trade contains skill with no chance and even in the State Lotteries the same element of chance remains with no skill and therefore it remains within the realm of gambling and the same would not be a trade in any case, would not qualify to be trade and commerce as used in Article 301.", "Further, the Honble Supreme Court was of the opinion that no gambling could be commercium and therefore the principle laid down in the case of State of Bombay vs M.D. Chamarbaugwala reported in  : AIR 1957 SC 699 would equally be applicable to the State organized lottery.", "It was therefore held that Lotteries organized by the State is also gambling in nature and cannot be construed to be a trade and commerce within the meaning of Article 301 to 303 of the Constitution of India.", "Further, in the case of Sunrise Associates (Supra), the Honble Supreme Court has held that a lottery ticket has no value in itself.", "The sale of lottery ticket does not necessarily involve the sale of goods and on purchasing a lottery ticket, the purchaser would have a right to claim to a conditional interest in the prize money which is not in the purchasers possession.", "The right would fall squarely within the definition of an actionable claim and would therefore be excluded from the definition of goods under the Sale of Goods Act and the sales tax statutes.", "In the case of Martin Lottery Agencies Limited (supra), the Honble Supreme Court has held that the law, as it stands today recognizes lottery to be gambling.", "Thus, holding of lottery being gambling, comes within the purview of the doctrine of res extra commercium.", "Organizing lottery by the State is tolerated being an economic activity on its part so as to enable it to raise revenue and that raising of revenue by the State, by itself cannot amount to rendition of any service.", "Under the Act of 2002, goods has been defined as goods defined in the sale of Goods Act, 1930 (8 of 1930) and includes-(A) products manufactured, processed or mined (B) debentures, stocks and shares after allotment (C) in relation to goods supplied, distributed or controlled in India, goods imported into India.", "Service has been defined as service of any description which is made available to potential users and includes the provision of services in connection with business of any industrial or commercial matters such as banking, communication, education, financing, insurance, chits fund, real estate, transport, storage, material treatment, processing, supply of electrical and other energy, boarding, lodging, entertainment, amusement, construction, repair, conveying of news or information and advertising.", "Trade has also been defined as any trade, business, industry, profession or occupation relating to the production, supply, distribution, storage or control of goods and includes the provision of any service.", "Considering the Act of 2002, this Court is of the considered opinion that the same would be applicable to legitimate trade and goods to ensure competition in the market, to protect the interest of the consumers and freedom of trade in markets which are res commercium.", "The lottery business being gambling and falling within the purview of the doctrine of res extra commercium and not qualifying in the normal parlance of trade and commerce would therefore not come within the purview of the Act of 2002.", "This being the position, the respondent Number 1 having no jurisdiction could not have entertained the information complaint of the respondent Number 3.", "Accordingly the Order dated 7.6.2012 passed by the respondent Number 1 directing the respondent Number 2 to cause an investigation is held to be illegal.", "Coming to W.P.(C) Number 24/2013, this Court has already noticed that in the order dated 7.6.2012 passed by the respondent Number 1, it was found that there was no contravention of Section 4 of the Act of 2002 in so far as the State of Mizoram is concerned.", "Further, in C.M. Application Number 101/2013, this Court has noticed the order dated 11.6.2013 passed by the respondent Number 1 wherein the representative was authorized to make a statement that the respondent Number 1 does not intend to pass any order against the State and to pray for lifting injunction order.", "If that be the position, the respondent Number 1 ought to have closed the case against the petitioners in W.P.(C) Number 26/2013 under Section 26 of the Act.", "This has not been done in the present case.", "Accordingly, this Court is of the considered opinion that no further proceedings can be allowed against the petitioners in W.P.(C) Number 26/2013 by the respondent Number 1.", "As regards the contention of the respondents Number 1 and 2 that the three writ petitions are not maintainable inasmuch the petitioners have approached this Court in the stage of show cause notice, this Court is of the considered opinion that having already held that the lottery business does not fall within the 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{"id": "CCI_Western_Coalfield_Limited__vs__SSV_Coal_Carriers_PCO20152807152158246COM767401", "text": ["Order under Section 26(1) of the Competition Act, 2002 The information in the present case was filed by M section Western Coalfield Limited (hereinafter, the Informant) under section 19(1)(a) of the Competition Act, 2002 (hereinafter, the Act) against SSV Coal Carriers Pvt.", "Limited (hereinafter, the Opposite Party Number 1/OP 1), M section Bimal Kumar Khandelwal (hereinafter, the Opposite Party Number 2/OP 2), M section Pravin Transport (hereinafter, the Opposite Party Number 3/OP 3), M section Khandelwal Transport (hereinafter, the Opposite Party Number 4/OP 4), M section Khandelwal Earth Movers (hereinafter, the Opposite Party Number 5/OP 5), M section Khanduja Coal Transport Company (hereinafter, the Opposite Party Number 6/OP 6), M section Punya Coal Road Lines (hereinafter, the Opposite Party Number 7/OP 7), M section B. Himmatlal Agrawal (hereinafter, the Opposite Party Number 8/OP 8), M section Punjab Transport Company (hereinafter, the Opposite Party Number 9/OP 9) and Avaneesh Logistics Pvt.", "Limited (hereinafter, the Opposite Party Number 10/OP 10), collectively referred to as the Opposite Parties, alleging contravention of the provisions of sections 3 of the Act.", "Briefly, the Informant is one of the eight subsidiary companies of Coal India Limited which is under the administrative control of Ministry of Coal.", "It is stated to have been conferred Miniratna status on 15.03.2007 and has mining operations which are spread over the States of Maharashtra (Nagpur, Chandrapur and Yeotmal districts) and Madhya Pradesh (Betul and Chhindawara districts).", "The Informant claims to be a major supplier of coal to industries located in the States of Maharashtra, Madhya Pradesh, Gujarat, Andhra Pradesh, Tamil Nadu, Karnataka and Kerala.", "A large number of power houses under Maharashtra, Madhya Pradesh, Gujarat, Karnataka, Punjab and Uttar Pradesh - Electricity Boards are major consumers of its coal along with cement, steel, chemical, fertilizers, paper and brick industries.", "The Opposite Parties are stated to be engaged in the business of providing ancillary services in colliery areas including sand and coal transportation in the area of operation of the Informant.", "It is stated that the Informant had issued a Tender Notice Number 34/2013-14 (Tender Notice I) for transportation of sand at Mahakali Colliery of Chandrapur area by hiring equipments whereby bids were invited from experienced and reputed contractors with experience of executing work of similar nature.", "It was further stated that the bid for the tender was called in two parts.", "Part I was for general eligibility criteria comprising of bid security earnest money deposit, qualification information, etc.", "Part II was for price bids and were to be opened only for bidders who qualify and are found eligible after the scrutiny of their respective Part I bid documents.", "The Informant has submitted that as per the conditions laid down in the tender notice and as a necessary part of Part I bid documents, all the bidders were required to sign pre-contract integrity pact wherein they agree not to indulge in any kind of unfair, illegal or corrupt practices at any stage of the bidding process (pre post contract stages) in order to secure the contract or in furtherance to secure it.", "It has been submitted that the estimated rates of the works to be executed under various tenders were based on the prices of diesel stated therein in the respective Notice Inviting Tenders (NITs).", "However, due to increase in the price of diesel post submissions of the bids and to retain the profitability and viability element for the bidders in the exercise, there was a provision of an upward revision in the estimated value of the works to be executed under the tender based on the deliberations of the Tender Committee.", "It is further stated that in response to Tender Notice I for sand transportation at Mahakali Colliery of Chandrapur Area, OP 1, OP 2 and OP 4 were found to have qualified for Part II bids, OP 3 was disqualified.", "It was noted by the Tender Committee that all the three qualified bidders quoted identical rates for all the three jobs mentioned in the said tender.", "Further, the rates quoted by them were 20.3 above the estimated cost.", "The Informant clarified that the trend of awarded rates for sand transportation tenders in the last two years had been 8.39 above to 9.26 below updated estimated cost.", "Also, in response to Tender Notice Number 37/2013-14 (Tender Notice II) for sand transportation at Hindustan Lalpeth Colliery of Chandrapur Area, all the four bidders OP 1, OP 2, OP 3 and OP 4 met the eligibility criteria under Part I. It was, however, again noted by the Tender Committee that the three bidders OP 2, OP 3 and OP 4 quoted identical rates for all the three jobs mentioned in the said tender, while OP 1 quoted slightly higher than the others.", "Further the Informant stated that the identical rate quoted by OP 2, OP 3 and OP 4 was 16.21 above the estimated cost.", "Similarly, for Tender Notice Number 03/2014-15 (Tender Notice III) for coal transportation at Neeljay South OCM of Wan Area, all the five bidders namely, OP 5, OP 7, OP 8, OP 9 and OP 10 qualified the eligibility criteria under Part I. Yet again, four out of five bidders OP 5, OP 7, OP 9, and OP 10 were found to have quoted identical rates and became L-1.", "It is submitted that L-1 rate was 38.47 above the estimated cost, 32.09 above the justified cost and 2.08 below ESM rates.", "That the trend of awarded rates after revision of justified rates (after February 2013) is 27.72 below to 23.35 above the justified rates, 14.65 below to 41.98 above the updated estimated rates and 3.01 below to 41.76 below ESM rates.", "For Tender Notice Number 06/2014-15 (Tender Notice IV) for coal transportation from loading point of Umrer CHP to wharf wall siding (Makardhokda Sub Area) of Umrer Area, OP 5, OP 6, OP 7 and OP 8 were found to have qualified the eligibility criteria.", "It was noted that OP 5, OP 6 and OP 7 quoted identical rates and became L- It is submitted that the L-1 rates were 41.26/64.57 above the justified cost and 2.66 below overall ESM rates.", "That the present trend of awarded rates is 27.72 below to 23.35 above justified rates, 14.65 below to 41.98 above the updated estimated rates and 3.01 below to 41.76 below ESM rates.", "After having evaluated all the four above mentioned tenders, the Tender Committee is alleged to have noted that the rates were identical and significantly higher than the updated estimated value of the work under the tenders.", "It was stated that the Tender Committee recommended cancellation of all four tenders and suggested issuance of fresh tenders sensing the alleged foul play by the bidders.", "Based on the recommendation of the Tender Committee, the tenders were cancelled.", "It is further alleged that OP 7 and OP 8 have been working in close proximity and jointly bidding for work under different tenders contracts as Joint Venture partners.", "To substantiate this claim, the Informant has submitted that in one of the earlier tenders floated by the Informant, OP 7 and OP 8 along with another firm, M section Fuleco Coal (India) Limited placed their bid as a Joint Venture.", "Although the Informant has submitted that all of them were debarred for not being able to commence the work on time, the fact of their joint bidding was used to buttress the possibility of collusion and anti-competitive behaviour on their part.", "The Informant has submitted that the conduct of the Opposite Parties is allegedly pernicious, illegal and was aimed at vitiating the entire procurement process.", "It is further alleged that the conduct of the Opposite Parties in submitting identical bids was a blatant act of bid-rigging which was in clear violation of the provisions of the Act.", "Based on the above allegations, the Informant has alleged that the Opposite Parties have contravened the provisions of the Act and has prayed for initiating an investigation against the Opposite Parties under the Act.", "The Commission after perusing the information decided to call the parties for a preliminary conference on 01.07.2015.", "On the said date, the Informant, OP 1, OP 3, OP 4, OP 7 and OP 9 appeared before the Commission and presented their oral arguments.", "OP 8 has filed its written submissions.", "OP 8 has denied in its reply to have adopted any unfair or anticompetitive practice.", "It is stated that for Tender Notice I and II, no bid was submitted by OP 8.", "Thus, question of any anti-competitive practice being adopted by OP 8, does not arise.", "With regard to Tender Notice III, which was for coal transportation at Neeljay, it has been submitted that all five bidders including OP 8 submitted their bids.", "Out of the 5 bidders, OP 9, OP 10 and OP 7 quoted identical rates but OP 8 quoted higher rates and thus became L-II.", "As regards Tender Notice IV, OP 8 has stated that four bidders submitted their bids and were qualified for part-II bids.", "Out of the four bidders, three bidders quoted identical rates and OP 8 quoted higher rates.", "It has been contended that the conduct of OP 8 and the rates quoted by it was a prudent business decision and could not be considered as unfair.", "Thus, no analogy could be drawn as to any unfair nexus between the Informant and OP 8.", "It has further been submitted by OP 8 that the Tender Committee had wrongly arrived at the conclusion that the rates were identical and significantly higher than the updated estimated value of the work under the tenders.", "The Commission has considered the submissions made by the Informant and the Opposite Parties.", "From the facts and circumstances of the case, it appears that the Informant is basically aggrieved by the alleged anti-competitive conduct of the Opposite Parties which has resulted in bid rigging of the above mentioned four tenders floated by the Informant.", "Prima facie examination of the price bids submitted by various Opposite Parties in the 4 aforesaid tenders floated by the Informant indicates some arrangement amongst the Opposite Parties.", "It is quite apparent that while in some tender notices, all the Opposite Parties, qualified for Part II bidding, have quoted identical rates and in others with marginal difference.", "In Tender Notice I, for sand transportation at Mahakali Colliery, all the eligible bidders OP 1, OP 2 and OP 4 had quoted identical rates and similarly for Tender Notice II, for Hindustan Lalpeth Colliery, three out of four eligible bidders (OP 2, OP 3 and OP 4) had quoted identical rates while OP 1 quoted a rate which was marginally above the identical rate as quoted by the other three Opposite parties.", "Similarly, in Tender Notice III for coal transportation at Neeljay South OCM of Wan Area, four out of five bidders (OP 5, OP 7, OP 9, and OP 10) had quoted identical rates and for Tender Notice IV, three out of four bidders OP 5, OP 6 and OP 7 quoted identical rates for the said tender while OP 8 had quoted a price slightly above the identical price as quoted by the other three Opposite Parties.", "The Commission also observes that all the identical quotes were above the updated estimated and justified cost and mostly below ESM rates.", "These similarities prima facie indicate that there was some kind of an arrangement amongst the Opposite Parties to collude by aligning the prices for the sand and coal transportation tenders.", "Further, the fact that such identical rates in the four tenders were much above the average estimated costs portray that the same could not have been the result of independent decision making.", "From the facts on record, it appears that the Opposite Parties were coordinating and fixing the prices of their services with the object of distorting the fair bidding process.", "The identical price quotations submitted by the Opposite Parties appear to have actuated by mutual understanding arrangement or in other words agreement amongst them.", "Although some of the Opposite Parties had quoted different rates, their rates were too close to the identical rates as quoted by others which could not be a mere coincidence.", "In view of the foregoing, the Commission is of the view that the Opposite Parties have contravened the provisions of section 3(1) read with section 3(3)(d) of the Act.", "Though the Commission has considered the submissions made by the Opposite Parties whereby they have denied collusion, the evidence on record suggest that prima facie they had colluded for aligning the prices for the sand and coal transport tenders.", "Accordingly, the Commission, under section 26(1) of the Act, directs the Director General (DG) to cause an investigation into the matter and to complete the same within a period of 60 days from receipt of this order.", "In case the DG finds that the Opposite Parties have acted in contravention of the provisions of Act, it shall also investigate the role of the officials persons who at the time of such contravention were in-charge of and responsible for the conduct of the business of the company.", "Nothing stated in this order shall tantamount to a final expression of opinion on merit 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