* HIGH COURT OF DELHI AT NEW DELHI
+ LPA No.2725/2005
% Date of decision : 2nd July, 2009
BSES RAJDHANI POWER LTD .... Appellant
Through: Mr.A.S.Chandhiok, Senior Advocate with
Mr.Amar Gupta, Mr.Amit Kapur,
Mr.Anupam Varma, Mr.Mayank Mishra,
Mr.Ritesh Kumar, Mr.Divyam Agarwal,
Mr.Arjun Mahajan and Mr.Sandeep Bajaj,
Advocates
versus
SAURASHTRA COLOR TONES PVT.LTD
& ANR. ... Respondents
Through: Mr.S.C. Nigam with Mr.A.Nayak,
Advocates
Mr.M.S.Gupta, Dy. Director(Law) DERC
in person
CORAM:
HON'BLE THE CHIEF JUSTICE
HON'BLE MR. JUSTICE S.N.AGGARWAL
HON'BLE DR. JUSTICE S.MURALIDHAR
1.Whether reporters of the local news papers
be allowed to see the judgment? Y
2.To be referred to the Reporter or not ? Y
3. Whether the judgment should be reported in the Digest? Y
AJIT PRAKASH SHAH, CHIEF JUSTICE:
RELEVANT FACTS
1. The appellant is a distribution company engaged in
distribution of electricity in its area of supply under a
LPA 2725/2005 Page 1 of 40
statutory licence issued by the respondent No.2, Delhi
Electricity Regulatory Commission (DERC for short). The
respondent No.2 is constituted and established under Section
17 of the Electricity Regulatory Commissions Act, 1988 (for
short the "ERC Act"). The respondent No.1, a company who
is the original writ petitioner, purchased an industrial shed
being Shed No.1 Category-1, DSIDC Complex, Nangloi, Delhi.
Initially connection No.002-156-022/IP was sanctioned for a
load of 89.52 KW in the name of the original allottee, Dev
Arora. Inspection on April 22, 1997 allegedly revealed a
connected load of 169.11 KW and, therefore, certain
demands were raised. Dev Arora filed a suit in the civil
court, that was eventually dismissed. In this connection a
writ petition being CWP 715 of 2003 was also filed by Dev
Arora which is pending in this Court. On transfer of the
premises in its name, the first respondent applied for
resumption of supply of electricity vide applications dated
November 30, 2002 and December 30, 2002. The appellant,
as required by Clause 2.1(iv) of 'General Conditions of
Supply" contained in the Tariff Order issued by the DERC in
exercise of its powers under Section 49 of the Electricity
Supply Act, 1948 (for short the "Supply Act") asked the first
respondent to deposit development charges, advance
LPA 2725/2005 Page 2 of 40
consumption deposit and "all such charges as may be
applicable including the outstanding dues against the
premises and/or disconnected connections as a condition
precedent for resumption of electricity supply. The first
respondent therefore approached this Court by filing Writ
Petition No.2479 of 2003 contending inter alia that a
purchaser of the property cannot be asked or coerced to pay
the amount which the appellant as the licencee may be
claiming from the former consumer.
2. The writ petition was heard and disposed of by the learned
single Judge along with five connected matters by a common
judgment dated November 9, 2005. The learned single
Judge, following the decisions of the Supreme Court in Isha
Marbles v. BSEB, (1995) 2 SCC 648, Ahmedabad
Electricity Company Ltd v. Gujarat Inn Pvt. Ltd, (2004)
3 SCC 587, Union of India v. Raman Iron Foundry, (1974)
2 SCC 231 and a judgment of the Gujarat High Court in Sona
Cooperative Housing Society v. Gujarat Electricity
Board, AIR 2004 Guj 26 and also judgments of Delhi High
Court in Inndev Engineers (India) P. Ltd v. Delhi Vidyut
Board, AIR 2002 Delhi 478, Shikha Properties Private Ltd
v. NDMC, (90) 2001 DLT 18, held, inter alia, that a
distribution company is not entitled to recover arrears of
LPA 2725/2005 Page 3 of 40
electricity charges pertaining to the electricity connection to
the premises from its new owner/occupier who seeks
resumption of supply of electricity unless it establishes mala
fides of the old and new consumer or the new consumer was
in fact a heir or successor of the defaulting party or had
actual notice of the existence of arrears. In any event,
according to the learned single Judge, disconnection as a
stand-alone action without initiation of recovery proceedings
against the actual consumer (not the subsequent purchaser)
by way of civil suit for recovery of arrears will be illegal. The
learned single Judge further held that "General Conditions of
Supply", as contained in the Tariff Order for the years 1997-
98 and 2001-02 cannot form part of "Tariff" as contemplated
under Section 49 of the Supply Act but are essentially
regulations under Section 79(j) of the Supply Act which must
be approved by the State Legislature under Section 79A of
the said Act. The learned single Judge, therefore, quashed
and set aside the General Conditions of Supply contained in
the Tariff Orders of 1997-98 and 2001-02. Consequently,
the writ petition was allowed and the appellant was directed
to restore the electricity supply to the first respondent
without insisting on clearance of the arrears of electricity
charges.
LPA 2725/2005 Page 4 of 40
3. At this stage it may be noted that by the common judgment
dated 9th November 2005 the learned Single Judge allowed
Writ Petition (C) No. 2479/2003 filed by the Respondent
herein (Saurashtra Color Tones Pvt. Limited), the Writ
Petition (C) No. 1105/2002 filed by Anil Kumar Singh and
Writ Petition (C) No. 3996/2003 by Munni Devi (deceased)
through her legal heirs. However, Writ Petition (C) No.
3533/2003 filed by Madhu Garg and J.B. Garg, Writ Petition
(C) No. 10586/2004 by Charan Jeet and Writ Petition (C) No.
7638/2003 filed by Meera Devi Jain were dismissed. Writ
Petition (Civil) No. 3532 of 2002 by Madhu Garg and J.B. Garg
was dismissed by the learned Single Judge on the ground
that clause 6 of the sale deed by which she purchased the
premises in question from the previous owner clearly
stipulated that she would have to bear the liability of clearing
the arrears of electricity dues attaching to the premises.
4. Consequently, against the common judgment dated 9 th
November 2005 of the learned Single Judge, BSES Rajdhani
Power Limited (which was aggrieved by the writ petition of
the Respondent herein being allowed) filed the present
appeal LPA No. 2725 of 2005, and Madhu Garg and JB Garg
filed LPA No. 223-24 of 2006. The appeals by Madhu Garg
and J.B. Garg were finally heard on the first hearing i.e 1st
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February 2006 and judgment reserved. Thereafter the
Division Bench heard some of the other appeals, involving a
similar question. The present appeal was heard finally on 8 th
March 2006 and judgment reserved.
5. The Division Bench delivered a judgment in Madhu Garg v.
North Delhi Power Limited on 22nd March 2006 [129
(2006) DLT 213 (DB)]. It is plain from para 22 of the
judgment that the Division Bench concurred with the
judgment of the learned Single Judge as regards dismissal of
Madhu Garg's writ petition. However in the remaining
portion of its judgment, the Division Bench disagreed with
the learned Single Judge on the interpretation of the relevant
statutory provision. The Division Bench categorically held
that the new owner can be compelled to pay electricity dues
of previous owner on transfer of premises. It was held that
there is no distinction between the occupier of the premises
who was aware of the outstanding electricity dues against
the previous owner/tenant and one who was not aware of it.
In either case dues have to be paid by the new
owner/occupier before supply can be continued/restored in
view of Clause 2.1(iv) of the General Conditions of Supply
which are statutory in nature (being a delegated legislation)
and question of bona fides or mala fides do not arise. Also,
LPA 2725/2005 Page 6 of 40
there is no requirement for a licensee to first initiate
recovery proceedings by filing a civil suit against that
consumer before disconnecting the supply. The Division
Bench further held that there is no illegality in Clause 2.1 of
General Conditions of Supply as it comes within the purview
of Tariff Order framed by the DERC as well as provisions of
Section 21(2) of Indian Electricity Act, 1910 (for short the
"1910 Act") and Section 49 of the Supply Act. General
Conditions of Supply do not require approval of State
Legislature under Section 79A of the Supply Act as they are
not regulations made under Section 79 of the said Act. The
Division Bench also held that the electricity dues in respect
of the electricity supply to premises, if permitted to be
equated with contractual claims of damages, it would
encourage dishonest consumers to raise some dispute or
other in respect of such arrears and evade consequences of
non-payment of electricity charges namely, disconnection/
non-resumption of supply.
6. It appears that although orders were reserved in the present
appeal on 8th March 2006 and therefore in view of the
opinion already expressed by the Division Bench in its
judgment dated 22nd March 2006 in Madhu Garg the
present appeal ought to have been allowed, for some reason
LPA 2725/2005 Page 7 of 40
the Division Bench did not pass that order. Instead on 23 rd
March 2006 the Division Bench passed an order directing the
present appeal to be listed for further hearing on 26 th April
2006.
7. Meanwhile Writ Petition (Civil) No. 2310/2007 was filed by
Suresh Rekhi and Mahesh Kumar, who were subsequent
purchasers of a shed in Okhla Industrial Area, Phase-I, New
Delhi, challenging the demand raised by the distribution
company (BSES Rajdhani Power Limited) that the arrears of
electricity dues concerning the said premises should be first
paid before a fresh electricity connection could be granted.
By an order dated 25th April 2006 the learned Single Judge of
this Court, following the judgment of the Division Bench in
Madhu Garg v. NDPL dismissed the writ petition.
Aggrieved by the dismissal of the writ petition Suresh Rekhi
and Mahesh Kumar filed LPA Nos. 1051-52 of 2006. The said
LPA was listed before the Division Bench of this Court
presided over by Hon'ble the Acting Chief Justice. On 26th
May 2006 the following order was passed in the said LPA:
"LPA 1051-52/2006
In view of the judgment rendered by the
Division Bench in Madhu Garg Vs. North Delhi
Power Limited (LPA 223-24/2006), whether
LPA 2725/2005 Page 8 of 40
under general condition of supply would also
include a previous tenant in the premises or
previous owner, notice thereof which has not
been received by the present incumbent who
seeks to get the electricity supply from the
respondent, shall also be covered under the
said definition, creates some doubt in our
mind. Therefore, in view of the said judgment,
we would like this question to be answered by
a larger Bench of three Judges.
Notice be issued to the respondent to show
cause as to why this appeal be not admitted,
by ordinary process as well as by registered
A.D. cover on filing of process fee returnable
on 19.10.2006.
In the meanwhile, the impugned order is
stayed."
8. When the present LPA No. 2725 of 2005 was placed for
hearing on 19th September 2006 before the Division Bench
headed by the Acting Chief Justice, it was also directed to be
heard along with LPA Nos. 1051-52 of 2006. The Bench was
informed that an SLP had been filed in the Supreme Court
against the judgment of the Division Bench in Madhu Garg.
LPA 2725/2005 Page 9 of 40
The Bench then directed: "To await the decision of the
Supreme Court or the decision of the larger Bench of three
judges." It may be mentioned here that as far as the LPA
No. 1051-52 is concerned, learned counsel stated that he did
not wish to press the appeal and by an order dated 16th
January 2009 the said appeal was dismissed as such.
9. Thereafter the present appeal was kept adjourned awaiting
the decision of the Supreme Court in the SLP filed against the
judgment of the Division Bench of this Court in Madhu Garg
v. NDPL (supra). However, this Court decided to hear the
case finally since it appeared that the recent decision of the
Supreme Court in Paschimanchal Vidyut Vitaran Nigam
Limited v. M/s. DVS Steels & Alloys Pvt. Limited JT
(2008) (12) SC 672 covers the issue squarely.
10. For greater clarity the question referred by the order
dated 26th May 2006 passed in LPA No. 1051-52 of 2006 may
be reframed as under:
Whether in terms of clause 2.1 of the General
Conditions of Supply contained in the Tariff Order dated
23rd May 2001 issued by Delhi Electricity Regulation
Commission (DERC), in terms of powers vested in it
under Section 28 (2) of the Delhi Electricity Reforms Act
LPA 2725/2005 Page 10 of 40
2000 (Reforms Act), can the distribution company insist
that an applicant for a fresh electricity connection
should first clear the arrears of the electricity dues
attaching to the premises in question notwithstanding
the fact that the said arrears accrued on account of the
non-payment of the demand by the previous
occupant/owner of the premises.
ARGUMENTS
11. Mr.A.S.Chandhiok, learned senior counsel representing
the appellant strenuously contended that conditions of
supply are statutory in character and have statutory force
and they are not "regulations" as contemplated by Section
79(j) of the Supply Act. In this connection he relied upon the
decision of a three Judge Bench of the Supreme Court in
Hyderabad Vanaspati v. APSEB (1998) 4 SCC 470
wherein it was held that even in absence of an individual
contract, the terms and conditions of supply notified by the
Board will be applicable to the consumer and he would be
bound by them. Mr.Chandhiok, relying upon a Division
Bench judgment of the Bombay High Court in MSEB v.
MERC AIR 2003 Bombay 398 stressed that the General
Conditions of Supply are part of a Tariff Order issued by the
DERC. He submitted that the General Conditions of Supply
LPA 2725/2005 Page 11 of 40
do not require to be placed before the State Legislature
under Section 79A of the Supply Act as they are not
regulations made under Section 79. Mr.Chandhiok also
sought to distinguish the decisions of the Supreme Court in
Isha Marbles and Ahmedabad Electricity Company
Limited on the ground that in those cases there was no
statutory provision which empowered the authorities to
refuse electricity supply for outstanding dues of the previous
owner. However, he pointed out that, in the present case
there is a clear statutory provision embodied in the General
Conditions of Supply to that effect. According to
Mr.Chandhiok DERC being a statutory commission is
empowered under Section 28(2) of the Delhi Electricity
Reforms Act, 2000 (for short the "Reforms Act") read with
Section 49 of the Supply Act to prescribe the terms and
conditions for the determination of supply of electricity. He
submitted that the Tariff Order issued by the DERC is
statutory in character and as such is binding on the first
respondent. He further submitted that the decision in Union
of India v. Raman Iron Foundry (supra) stands overruled
by subsequent judgment of the Supreme Court in
H.M.Kamaluddin Ansari v. Union of India, (1983) 4 SCC
417 and accepted as overruled in Sant Ram & Co v. State
LPA 2725/2005 Page 12 of 40
of Rajasthan, (1997) 1 SCC 147 and ONGC v. Saw Pipes,
(2003) 5 SCC 705, In any event, according to him, the
arrears on account of charges for electricity supply can
never be equated and treated at par with contractual claims
of damages, which was the subject matter of the decision in
Raman Iron Foundry case. This is for the reason that
electricity is public property and any arrangement for supply
thereof, though in form of a contract, partakes the character
of a statutory contract since the terms and conditions thereof
are statutory in nature. Finally, he submitted that the issue
now stands concluded by a recent decision of the Supreme
Court in Paschimanchal Vidyut Vitaran Nigam Ltd v.
M/s. DVS Steels & Alloys Pvt. Ltd, JT 2008 (12) SC 672
wherein a two Judge Bench has held that where the
purchaser of a premises approaches the distributor seeking a
fresh electricity connection to its premises for supply of
electricity, the distributor can stipulate as one of the
conditions of supply that the arrears due in relation to supply
of electricity made to the premises when it was in occupation
of the previous owner/occupant should be cleared before the
electricity supply is restored to the premises or a fresh
connection is provided to the premises.
LPA 2725/2005 Page 13 of 40
12. In reply, Mr.S.C.Nigam, learned counsel appearing for
the respondent No.1 submitted that law stands settled by the
Supreme Court in Isha Marbles case wherein the Court
while expounding Sections 2(c), 24 and Clause 6 of
Schedule-I of the 1910 Act have categorically ruled that the
subsequent purchaser cannot be subject to the condition of
discharging the liability of the former owner in respect of
supply in the premises before grant of an electricity
connection to the subsequent purchaser. According to him
Isha Marbles, which was followed in Ahmedabad
Electricity Company Limited, is applicable not only to
auction purchasers but also to subsequent transferees.
Further, according to him the only remedy of the appellant is
to enforce its claim by a civil suit against the former
owner/consumer and forfeiting the security amount
deposited by him. Mr.Nigam contended that the condition
contained in Clause 2.1(iv) of the Conditions of Supply is
ultra vires the Supply Act and the Reforms Act. He pointed
out that the Supply Act in Section 79 gives power to the
Electricity Board to make regulations not inconsistent with
the Act. While enumerating the matters on which the
regulations are to be made, the regulations made in order to
be valid are required to be laid before the State Legislature
LPA 2725/2005 Page 14 of 40
as per Section 79A of the Act. According to him DERC under
the ERC Act is empowered to fix the tariff order which will not
include terms and conditions of supply for which the DERC is
required to frame regulations under Section 79 of the Supply
Act read with Section 28 of the Reform Act. Learned counsel
referred to the celebrated judgment in Taylor v. Taylor,
(1879) 1 Chancery Division 426 where Justice Jessel M.R.
adopted the rule that where a power is given to do a certain
thing in a certain way, the thing must be done in that way or
not at all and that other methods of performance are
necessarily forbidden. He submitted that the rule laid down
in Taylor v. Taylor has been followed by the Supreme Court
in Ram Chander v. Govind, AIR 1975 SC 915 and several
other cases.
LEGISLATIVE FRAMEWORK
13. Before adverting to the rival contentions it is
necessary to refer to the relevant provisions in various
enactments governing the legal regime of the distribution of
electricity. The Electricity Act was passed originally in 1903
but it was repealed by the 1910 Act which amended the law
relating to supply and use of electrical energy. The said Act
was not a complete code on the subject. It was apparently
found to be inadequate for coordinating development of
LPA 2725/2005 Page 15 of 40
electricity on the regional basis. Hence the Supply Act was
enacted in 1948 to provide for rationalisation of production
and supply of electricity and generally for taking measures
conducive to electricity development. As part of power
sector reforms undertaken since mid 1990s legislative
initiatives undertaken which included enactment of the ERC
Act, the Reforms Act and the Electricity Act, 2003. We are
not concerned in the present case with the Electricity Act of
2003 as the matter pertains to the period prior to the
enactment of the said Act. We shall briefly refer to the
relevant provisions of the other enactments. Section 21(2) of
the 1910 Act empowers the licencee "to regulate" his
relations with persons "who are or intend to become
consumers". Section 21(2) is extracted and reproduced
hereinbelow:
"21(2). A licencee may, with previous
sanction of the State Government, given after
consulting the State Electricity Board and
also the local authority, where the licencee is
not the local authority, make conditions not
inconsistent with this Act or with his licence
or with any rules made under this Act, to
regulate his relations with persons who are or
intend to become consumers, and, may, with
the like sanction given after the like
consultation, add to or alter or amend any
such conditions; and any conditions made by
a licencee without such sanction shall be null
and void."
LPA 2725/2005 Page 16 of 40
14. While the 1910 Act deals with supply and use of energy
and the rights and obligations of the licencee, the Supply Act
deals with statutory powers and functions of the Central
Electricity Authority, the State Electricity Boards and
generating companies. By virtue of Section 26 of the Supply
Act the "State Electricity Board" (Delhi Vidyut Board) was
vested with the powers and obligations of licencee under the
1910 Act. Section 49(1) and (4) of the Supply Act
empowered the Board to supply electricity to any person
other than a licencee - i.e. the real consumer - upon such
terms and conditions as the Board thought fit and to frame
uniform tariffs for the purposes of such supply. Section 49(1),
which is material for our purpose, is extracted and
reproduced hereinbelow:
"49. Provision for the sale of electricity by the
Board to persons other than licencees:- (i)
subject to the provisions of this Act and of
regulations, if any, made in this behalf, the
Board may supply electricity to any person
not being a licencee upon such terms and
conditions as the Board thinks fit and may for
the purposes of such supply frame uniform
tariffs."
15. Under Section 79 of the Supply Act, the Board was
empowered to make regulations to provide for various
matters set out therein and Clause (j) relates to principles
LPA 2725/2005 Page 17 of 40
governing the supply of electricity by the Board to persons
other than licencees under Section 49. Regulations framed
under Section 79 are required to be placed before the State
Legislature by virtue of Section 79A.
16. The ERC Act was enacted pursuant to the Minimum
National Action Plan for Power adopted in the Conference of
Chief Ministers and Section 22(1)(a) and (b) thereof deals
with the Commission's power to fix the tariff and 22(2)(d)
deals with licencing. DERC was constituted under the ERC
Act in December, 1999.
17. The Reforms Act was also enacted as part of the
implementation of reforms in the power sector and was
enforced after receiving the assent of the President of India
under Article 364 of the Constitution of India. Section 11 of
the Reforms Act lays down the functions of the Commission
including, inter alia, the determination of the tariff for
electricity, wholesale, bulk, grid, or retail, as the case may
be. Section 15 of the Reforms Act empowered the Delhi
Government and provided for the reorganisation of Delhi
Vidyut Board through a Statutory Transfer Scheme. Under
sub-section (3) it was stipulated that "such of the rights and
powers to be exercised by the Board under the Electricity
(supply) Act, 1948 (54 of 1948) as the case may be by
LPA 2725/2005 Page 18 of 40
notification in the official gazette, specified, shall be
exercisable by a company or companies established as the
case may be, under Section 14 for the purposes to discharge
all the functions and duties with which it is entrusted."
Section 20 of the Reforms Act relates to grant of licence and
the procedure therefor. Section 22 of the Reforms Act lays
down the general conditions and powers of the licencee.
Section 22 reads as follows:
"22. General duties and powers of the
licencees.-(1) It shall be the duty of the
holder of a supply licence or a transmission
licence in respect of a particular area to
develop and maintain an efficient,
coordinated and economical system of
electricity supply or transmission in the
area of transmission or area of supply as
the case may be.
(2) Each licencee and generating company
in discharge of its duties shall comply with
the provisions of the regulations framed
from time to time governing the terms and
conditions for the operation and
maintenance of power system and electric
supply lines."
18. Section 28 of the Reforms Act deals with tariffs and
sub-section (2) thereof, which is material for our purpose
reads as follows:
"The Commission shall, subject to the
provisions of sub-section(3), be entitled to
prescribe the terms and conditions for the
determination of the licensee's revenues
and tariffs by regulations duly published in
the official Gazette and in such other
LPA 2725/2005 Page 19 of 40
manner as the Commission considers
appropriate."
Section 61 of the Reforms Act empowers the DERC to frame
regulations to carry out the purposes of the Act including the
matters enumerated therein.
19. Under Section 63(2) of the Reforms Act all matters with
which the Delhi Vidyut Board was concerned with or dealing
with all its functions were inherited by DERC and the
companies established under Section 14. Legislative intent
to save the powers of the Board under the 1910 Act as well
as the Supply Act (except those expressly excluded) and vest
the same in the successor entities including Commission as a
regulator is apparent on a bare reading of Section 63.
Section 63 is extracted and reproduced as below:
"63. Effect of the Act on the Indian Electricity, 1910
and the Electricity(Supply) Act,1948.-
(1) Except as provided in section 63 of this Act, the
provisions of this Act, notwithstanding that the
same are inconsistent with or contrary to the
provisions of the Indian Electricity Act, 1910 or the
Electricity (Supply) Act, 1948 shall prevail in the
manner and to the extent provided in sub-section (3).
(2) Subject to sub-section (1) in respect of all
matters in the Indian Electricity Act, 1910 and the
Electricity (Supply) Act, 1948, with which the Delhi
Vidyut Board has been concerned or dealing with,
upon the constitution of the Commission the
functions of the Board shall be discharged by the
Commission and the companies established under
section 14.
LPA 2725/2005 Page 20 of 40
............................
(3) Subject to sub-section (1) and sub-section (2) of
this section, upon the establishment of the
Commission the provisions of the Indian Electricity
Act, 1910 and the Electricity (Supply) Act, 1948 shall,
in so far as the National Capital Territory of Delhi is
concerned, shall be read subject to the following
modifications and reservations, namely:-
THE INDIAN ELECTRICITY ACT,1910
(i) All references to State Electricity Board in the
Indian Electricity Act, 1910 in so far as the National
Capital Territory of Delhi is concerned shall be read
as references to the Delhi Electricity Regulatory
Commission or the companies established under
section 14 or other licensees or wherever it relates to
general policy matters, to the Government.
(ii) In respect of matters provided in sections 3 to
11, 28, 36(2), 49-A, and 50 and 51 of the Indian
Electricity Act, 1910, to the extent this Act has made
specific provisions, the provisions of the Indian
Electricity Act 1910 shall not apply in the National
Capital Territory of Delhi.
(iii) The provisions of all other sections of the Indian
Electricity Act, 1910(9 of 1910) shall apply except
that:-
(a) the term “licence”, “licensee”, “licence
holder” shall have the meanings as defined under
this Act and the licences shall be construed as having
been issued under this Act;
(b) the reference to the sections of the Indian
Electricity Act, 1910 and the Electricity (Supply) Act,
1948 in the provisions of the Indian Electricity Act,
1910 shall be taken as reference to the
corresponding provisions of this Act to the extent
modified by this Act;
(c) the reference to arbitration in these
LPA 2725/2005 Page 21 of 40
provisions except where it is by the Central
Electricity Authority or the Central Electricity
Regulatory Commission shall be taken as reference
to the proceedings under section 40 of this Act and
the arbitration procedure prescribed under the
Indian Electricity Act, 1910 shall not apply.
……………
THE ELECTRICITY (SUPPLY) ACT,1948
(v) All references to State Electricity Board in the
Electricity (Supply) Act, 1948 in so far as the
National Capital Territory of Delhi is concerned shall
be read as references to the Delhi Electricity
Regulatory Commission or the companies established
under section 14 or other licensees or where it
relates to general policy matters, to the Government.
(vi) In respect of matters provided in sections 5 to
18, 19, 20, 23 to 27, 37, 40 to 45, 46 to 54, 56 to 69,
72 and 75 to 83 of the Electricity (Supply) Act, 1948,
to the extent this Act has made specific provisions,
the provisions of the Electricity (Supply) Act,1948
shall not apply in the National Capital Territory of
Delhi.
(vii) The provisions of all other sections of the
Electricity (Supply) Act, 1948 shall apply except that
–
(a) the term “licence” , “licensee” , “licence
holder” shall have the meanings as defined under
this Act and the licences shall be construed as having
been issued under this Act;
(b) the references to the sections of the Indian
Electricity Act, 1910 and the Electricity (Supply) Act,
1948 in the provisions of the Electricity (Supply) Act,
1948 shall be taken as reference to the
corresponding provisions of the Act to the extent
modified by this Act;
(c) the reference to arbitration in these
provisions except where it is by the Central
Electricity Authority shall be taken as reference to
LPA 2725/2005 Page 22 of 40
the proceedings under section 40 of this Act and
the arbitration procedure prescribed under the
Electricity (Supply) Act, 1948 (54 of 1948)shall not
apply.
20. The DERC issued its first Tariff Order in May 23, 2001
which was effective from June 1, 2001. The said Tariff Order
contained General Conditions of Supply wherein the
condition akin to the one contained in the earlier Tariff Order
issued by the DVB namely, condition 1(iv) of the General
Conditions of Supply. The said condition is extracted and
reproduced below:
“General Conditions of Supply
2.1 Supply of electricity in all cases is
subject to conditions that :
(iv) The application deposits development
charges, advance consumption deposit and
all such charges as may be applicable
including outstanding dues against the
premises and/or disconnected
connection(s).” (emphasis supplied)
DERC thereafter issued a Tariff Order for the year 2003 and
2003-2004 on June 26, 2004. It also contained provision
similar to the condition in Clause 2.1(iv) of the Conditions of
Supply.
WHETHER CONDITIONS OF SUPPLY ARE REQUIRED TO BE
PLACED BEFORE THE STATE LEGISLATURE
LPA 2725/2005 Page 23 of 40
21. As has been seen, Section 49 of the Supply Act
stipulates that the Board may formulate conditions of supply
after due consideration of the provisions of the Act and any
regulations made in this behalf whereas the power to make
regulations is embodied in Section 79 of the said Act. The
power conferred upon the Board under Section 49(1) is now
assumed by the DERC by virtue of Sections 19 and 20 read
with 63(2) of the Reforms Act. DERC is vested with the
power to frame tariff and as a part of the licencing and
regulations making process to stipulate conditions governing
terms of supply in terms of Sections 11, 19, 20 and 63(2) of
the Reforms Act. In Hyderabad Vanaspati v. APSEB
(supra) the Supreme Court made it clear that the power of
the Board to frame terms and conditions of supply is distinct
from its power to make regulations. Even in the absence of a
individual contract, the terms and conditions of supply
notified by the Board will be applicable to the consumer and
he will be bound by them. The relevant observations of the
Court are extracted below:
“20. We have already seen that Section 49
of the Supply Act empowers the Board to
prescribe such terms and conditions as it
thinks fit for supplying electricity to any
person other than a licensee. The section
empowers the Board also to frame uniform
tariffs for such supply. Under Section 79(j)
the Board could have made regulationLPA 2725/2005 Page 24 of 40
therefor but admittedly no regulation has
so far been made by the Board. The Terms
and Conditions of Supply were notified in
BPMs No. 690 dated 17-9-1975 in exercise
of the powers conferred by Section 49 of
the Supply Act. They came into effect from
20-10-1975. They were made applicable to
all consumers availing supply of electricity
from the Board. The section in the Act does
not require the Board to enter into a
contract with individual consumer. Even in
the absence of an individual contract, the
Terms and Conditions of Supply notified by
the Board will be applicable to the
consumer and he will be bound by them.
Probably in order to avoid any possible plea
by the consumer that he had no knowledge
of the Terms and Conditions of Supply,
agreements in writing are entered into with
each consumer. That will not make the
terms purely contractual. The Board in
performance of a statutory duty supplied
energy on certain specific terms and
conditions framed in exercise of a statutory
power. Undoubtedly the terms and
conditions are statutory in character and
they cannot be said to be purely
contractual.
22. In Punjab SEB v. Bassi Cold Storage, 1994 supp(2)
SCC 124 the Supreme Court held that the conditions of
supply are akin to subordinate legislation.
23. In Bihar SEB v. Parmeshwar Kumar Agarwala,
(1996) 4 SCC 686 the Supreme Court held that conditions of
supply are part of statutory terms and conditions. In
paragraph 16 of the judgment, the Court said: (SCC p. 691)
LPA 2725/2005 Page 25 of 40
“16. Before we advert to the effect
produced by a combined reading of the
four clauses, it deserves to be pointed out
that the terms and conditions have
sacrosanctity, in that Rule 27 of the Indian
Electricity Rules, 1956, framed by the
Central Electricity Board in exercise of
power under Section 37 of the 1910 Act
has, read with Annexure VI thereof,
provided the model conditions of supply
which are required to be adopted by the
State Boards. It is on the basis of this
statutorily prescribed model, with suitable
variations, that energy had been supplied
by the Board to the consumers. The model
conditions can be said to be akin to the
model Standing Orders prescribed by the
Industrial Employment (Standing Orders)
Act, 1947, which, when certified, become
part of the statutory terms and conditions
of service between the employer and
employees and they govern the
relationship between the parties, as held in
Workmen v. Firestone Tyre & Rubber
Co. of India (P) Ltd. SCC at p.832. We
are inclined to think that similar is the
effect of terms and conditions, on which a
State Board supplies energy to the
consumers.”
24. In the light of the decision in Hyderabad Vanaspati
Ltd v. APSEB, it is clearly seen that the conditions of supply
notified by the Board/DERC are not regulations and are not
required to be placed before the State Legislature under
Section 79A of the Supply Act. Explaining this position,
Katju, CJ observed in Madhu Garg’s case:
“17. ……. In our opinion, there is no illegality or
unconstitutionality in sub-clause (iv) of Clause 2
of the General Condition of Supply.
LPA 2725/2005 Page 26 of 40
18. It may be mentioned that in Hyderabad
Vanaspati Ltd. v. A.P. State Electricity
Board AIR 1998 SCC 1715, the Supreme Court
took the view that even in the absence of a
contract the terms and conditions of supply will
be governed by the statutory Regulations and
they will applicable to the consumers who will be
bound by them.
…….
20. The above Clause 2.1 (iv) of the General
Conditions of Supply has been framed under
Section 21(2) of the Indian Electricity Act 1910 as
well as Section 49 of the Electricity Supply Act,
1948, and hence is a piece of delegated
legislation.
21. The learned Single Judge in the impugned
judgment has struck down Clause 2.1 (iv) of the
General Conditions of Supply. With respect to
him, we are of the opinion that there is no
illegality in the said Clause as it comes within the
purview of the Tariff Order framed by the Delhi
Electricity Regulation Commission as well as
under Section 21(2) of the Indian Electricity Act,
1910 and Section 49 of the Electricity Supply Act,
1948. We do not agree that the General
Conditions of Supply requires approval of the
State Legislature under the proviso to Section 79
of the Electricity (Supply) Act, as in our opinion
they are not Regulations made under Section 79.
………
29.In our opinion, the condition of supply relates
to Section 49 of the Electricity (Supply) Act, as
well as Section 11 and 28 of the DERA. The Court
has consistently held that the condition of supply
forms an integral part of the tariff and does not
require approval of State Legislature. In fact,
Clause 2.1 (iv) of the Condition of Supply was
formulated by DESU (DVB) as far back as in
1997-98 and thereafter adopted by DERC in
2001-02.”
LPA 2725/2005 Page 27 of 40
25. In MSEB v. MERC (supra) the Division Bench of the
Bombay High Court has categorically held that the conditions
of supply form an integral part of the tariff. The Court
observed:
“10…….The terms and conditions for supply
of electricity also go with the cost of
electricity. Therefore, while fixing the tariff
for electricity, the State Commission has to
necessarily take into consideration terms
and conditions for supply of electricity in so
far as they add to the costs of the
electricity. In determination of the tariff of
electricity, the terms and conditions of
supply which form integral part of the
electricity tariff cannot be bifurcated in the
manner suggested by Mr. Diwan. Fixing of
such terms and conditions by MSEB also
impinges on payment of charges by the
consumers and are, therefore, subject to
review by the Commission in view of
Section 29(1) and (4) of ERC Act. Section
29(4) of ERC Act provides that the Board
shall observe methodology and procedure
specified by the Commission from time to
time in calculating the expected revenue
from tariff which it is permitted to recover
and in determining tariffs to collect those
revenue. Therefore, the charges as such
service line charges, transmission charges
etc. which were charged by MSEB will have
to be approved by the Commission.”
26. The effect of the General Conditions of Supply as
contained in Tariff Order dated May 23, 2001 has been
considered and discussed by a Division Bench of this Court in
Suresh Jindal v. BSES Rajdhani Power Ltd, LPA
LPA 2725/2005 Page 28 of 40
256/2006, decided on February 20, 2006. In paragraph 51 of
which it was observed:
“It may be mentioned that the binding and
statutory nature of the Conditions of Supply
has been upheld by the Supreme Court in
Punjab State Electricity v. Bassi Cold
Storage, 1994 suppl (2) SCC 125, Bihar
State Electricity Board v. Parmeshwar, 1994
(4) SCC 636 (vide para 16) and
M/s.Hyderabad Vanaspati Ltd v. A.P.State
Electricity Board, AIR 1998 SC 1715 (para
22).”
In the same judgment it was also observed in paragraph 57:
No doubt, the license was granted by the
Delhi Electricity Regulatory Commission on
11.3.2004 However, the respondent had
applied for the license under Rule 10 (2) of
the Delhi Electricity Reforms (Transfer
Scheme) rules 2001 within 60 days of
1.7.2002, which was the notified date of
transfer. Hence the respondents were duly
licensed to supply electronic meters in the
area of their distribution and were vested
with the powers of the licensee under the
Indian Electricity Act, 1910, Electricity
(Supply) Act, 1948, and the rules framed
there under. The powers under Section 26
of the Indian Electricity Act, 1910 and
Section under Section 49 of the Electricity
(Supply) Act, 1948 were available with the
respondent No. 1 as also the power under
the conditions of supply which were notified
when Delhi Vidyut Board was in existence.
27. In our opinion, the learned Single Judge erred in relying
upon decision of the Gujarat High Court in Sona
Cooperative Housing Society v. Gujarat Electricity
Board (supra). The General Conditions of Supply framed by
LPA 2725/2005 Page 29 of 40
the DERC are not required to be placed before the State
Legislature as they are not regulations made under Section
79 of the Supply Act. There is no illegality attached to the
conditions of supply framed by the DERC and they are of
binding and statutory in nature as held by the Supreme Court
in M/s. Hyderabad Vanaspati v. APSEB (supra).
ENTITLEMENT OF DISTRIBUTION COMPANY TO RECOVER
DUES FROM NEW OWNER/CONSUMER
28. The learned single Judge has mainly relied upon the
Supreme Court decision in Isha Marbles (supra). We have
carefully perused the said decision. In that decision the facts
were that the previous owner of the premises in question had
mortgaged/hypothecated the premises to secure a loan from
the State Financial Corporation. Since the loan was not
repaid, the property was auctioned under Section 29 of the
State Financial Corporation Act, 1951. The auction purchaser
applied for re-connecting of the electricity supply to the
premises which had been disconnected for non-payment of
dues by the previous owner. The question arose whether the
auction purchaser had to pay the electricity dues of the
previous owner to get restoration of the electricity
connection. The Supreme Court observed that the Electricity
Board had no charge over the property, and it could not seek
LPA 2725/2005 Page 30 of 40
enforcement of the contractual liability against a third party
(the State Financial Corporation). The Supreme Court further
observed that the law, as it stands, is inadequate to enforce
the liability of the previous contracting party against the
auction purchaser who is a third party. In this regard, the
relevant observations in paragraph 63 of the judgment are
extracted below:
“Electricity is public property. Law, in its
majesty, benignly protects public property
and behoves everyone to respect public
property. Hence, the courts must be
zealous in this regard. But, the law, as it
stands, is inadequate to enforce the liability
of the previous contracting party against
the auction-purchaser who is a third party
and is in no way connected with the
previous owner/occupier. It may not be
correct to state, if we hold as we have done
above, it would permit dishonest
consumers transferring their units from one
hand to another, from time to time,
infinitum without the payment of the dues
to the extent of lakhs and lakhs of rupees
and each one of them can easily say that
he is not liable for the liability of the
predecessor in interest. No doubt,
dishonest consumers cannot be allowed to
play truant with the public property but
inadequacy of the law can hardly be a
substitute for overzealousness.”
29. In our opinion, the statutory void or inadequacy of law
found by the Supreme Court in Isha Marbles has been
corrected in the Reforms Act empowering the distribution
companies in the NCT of Delhi to recover arrears of
LPA 2725/2005 Page 31 of 40
electricity charges from the new owner/occupier. Condition
2.1(iv) of the General Conditions of Supply, as contained in
the Tariff Order, issued by the DERC in exercise of its powers
under Section 49 of the Supply Act read with Section 63(2) of
the Reform Act provides for recovery of arrears of electricity
charges from new occupiers/owners of the premises. The
said condition has been continued in effect under Section
185(2)(a) of the Electricity Act, 2003 till the same is varied or
abrogated. Thus the decision in Isha Marbles case is
clearly distinguishable, as the Supreme Court observed
therein that it was due to inadequacy of law, as applicable in
the State of Bihar that arrears could not be realised from the
subsequent purchaser. However, the law applicable in Delhi
is different inasmuch as there is a statutory condition of
supply which requires payment of such outstanding dues
before resumption/continuation of the electricity supply.
30. We may also mention that the decision in Isha
Marbles case was distinguished by the Kerala High Court in
A.Ramachandran v. KSEB, AIR 2001 Kerala 51 and Seena
B. Kumar v. Assistant Executive Engineer, AIR 2004
Kerala 68, in which it was held that under Section 79(j) of the
Electricity Supply Act, 1948, the Kerala Electricity Board had
framed Regulation 15(d) which provided that all the dues to
LPA 2725/2005 Page 32 of 40
the Board from a consumer shall be charged on the asset of
the consumer and hence can be realised as arrears of land
revenue. The Division Bench of the Kerala High Court held
that Regulation 15(d) is statutory in nature and it will
supersede any contract between the parties. The Division
Bench in Madhu Garg after noting the decisions in
A.Ramachandran v. Kerala State Electricity Board and
Seena B. Kumar v. Assistant Executive Engineer
observed:
“13. The learned counsel for respondents
has sought to distinguish the decision of
the Supreme Court in Isha Marbles Case
(supra) on the ground that in that case
there was no statutory provision which
empowered the authorities to refuse supply
of electricity for outstanding dues against
the previous owner. However, in the
present case, there is a clear statutory
provision embodied in the General
Condition of Supply to that effect. We agree
with this submission. In our opinion, the
general conditions of supply is a piece of
delegated legislation, and hence has
statutory force.
14. In our opinion, there is no distinction
between the purchaser of a premises who
was aware that there were outstanding
electricity dues against the previous
owner/tenant, and one who was not aware
of it. In either case, the dues have to be
paid by the new owner/occupant before
supply can be continued / restored. This is
because of the statutory provision
contained in Clause 2 (iv) of the General
Conditions of Supply which has been
quoted above.
LPA 2725/2005 Page 33 of 40
15. In our opinion, whenever a person
purchases a property, it is his duty to find
out whether there are outstanding
electricity dues in relation to the premises
or not, and he cannot be allowed to say
later that he was unaware of the fact that
there were electricity dues of the previous
owner / tenant.
16.In view of the General Condition of
Supply, it is the duty of the new
owner/occupant to himself make enquiries
and find out whether there was such dues
or not. The General conditions of supply are
statutory in nature (being delegated
legislation), and hence the question of bona
fide or mala fide does not arise, and in
either case the new owner/occupant of the
premises has to pay the dues against the
previous owner / tenant, if he wishes the
electric supply to be continued/restored.”
31. The position is now placed beyond any pale of doubt
by the recent judgment of the Supreme Court in
Paschimanchal Vidyut Vitaran Nigam Ltd. v. M/s. DVS
Steels & Alloys Pvt. Ltd (supra). In this case the appellant
distribution company was one of the successors-in-interest of
the UP State Electricity Board. The third respondent was a
consumer receiving electricity supply from the Board to its
industrial unit at Ghaziabad. It appears that the Board had
raised certain supplementary bills against the third
respondent towards the difference in tariffs, in respect of
which the third respondent filed a civil suit disputing the said
claim and obtained an order of injunction restraining the
Board from recovering the said supplementary bills amount.
LPA 2725/2005 Page 34 of 40
Injunction was stayed in appeal preferred by the Board
before the Allahabad High Court. The third respondent
closed its unit. It sub-divided its industrial plot into 129
smaller plots of different sizes with the permission of Uttar
Pradesh State Industrial Development Corporation. One of
those plots was sold by the third respondent to the first
respondent. The first respondent applied to the appellant for
supply of electricity which came to be sanctioned subject to
the condition that it should pay arrears due by the third
respondent, in proportion to the area purchased by it, as a
condition precedent for supply of electricity. Accordingly, the
first respondent deposited a sum of Rs.8,63,451/- being the
dues of the third respondent pro rata, subject to the
condition that in the event of pending challenge to the
demand being decided in favour of third respondent, the
appellant shall refund the amount deposited by the first
respondent. Later on, on the basis of certain orders passed
by the UP State Electricity Regulatory Commission, the first
respondent filed a writ petition seeking direction to the
appellant to refund the sum of Rs.8,63,451/- with interest @
12% per annum. The High Court allowed the said writ
petition and directed the appellant to refund the said amount
with interest @ 6% per annum from the date of payment.
LPA 2725/2005 Page 35 of 40
The question before the Supreme Court was whether the
supplier can recover the electricity dues from the purchaser
of sub-divided plot. Answering this question in the
affirmative, the Supreme Court held as follows:
“10. But the above legal position is not of
any practical help to a purchaser of a
premises. When the purchaser of a
premises approaches the distributor
seeking a fresh electricity connection to its
premises for supply of electricity, the
distributor can stipulate the terms subject
to which it would supply electricity. It can
stipulate as one of the conditions for
supply, that the arrears due in regard to the
supply of electricity made to the premises
when it was in the occupation of the
previous owner/occupant, should be cleared
before the electricity supply is restored to
the premises or a fresh connection is
provided to the premises. If any statutory
rules govern the conditions relating to
sanction of a connection or supply of
electricity, the distributor can insist upon
fulfilment of the requirements of such rules
and regulations. If the rules are silent, it
can stipulate such terms and conditions as
it deems fit and proper to regulate its
transactions and dealings. So long as such
rules and regulations or the terms and
conditions are not arbitrary and
unreasonable, courts will not interfere with
them.
11. A stipulation by the distributor that the
dues in regard to the electricity supplied to
the premises should be cleared before
electricity supply is restored or a new
connection is given to a premises, cannot
be termed as unreasonable or arbitrary. In
the absence of such a stipulation, an
unscrupulous consumer may commit
defaults with impunity, and when theLPA 2725/2005 Page 36 of 40
electricity supply is disconnected for non-
payment, may sell away the property and
move on to another property, thereby
making it difficult, if not impossible for the
distributor to recover the dues. Having
regard to the very large number of
consumers of electricity and the frequent
moving or translocating of industrial,
commercial and residential establishments,
provisions similar to Clauses 4.3(g) and (h)
of the Electricity Supply Code are necessary
to safeguard the interests of the distributor.
We do not find anything unreasonable in a
provision enabling the distributor/supplier
to disconnect electricity supply if dues are
not paid, or where the electricity supply has
already been disconnected for non-
payment, insist upon clearance of arrears
before a fresh electricity connection is
given to the premises. It is obviously the
duty of the purchasers/occupants of
premises to satisfy themselves that there
are no electricity dues before
purchasing/occupying a premises. They can
also incorporate in the deed of sale or
lease, appropriate clauses making the
vendor/lessor responsible for clearing the
electricity dues up to the date of sale/lease
and for indemnity in the event they are
made liable. Be that as it may.
12. In this case, when the first respondent,
who was the purchaser of a sub-divided
plot, wanted a new electricity connection
for its premises, the appellant informed the
first respondent that such connection will
be provided only if the electricity dues are
paid pro rata. They were justified in making
the demand. Therefore, it cannot be said
that the collection of Rs.8,63,451 from the
first respondent was illegal or unauthorised.
It is relevant to note that when the said
amount was demanded and paid, there was
no injunction or stay restraining the
appellant from demanding or receiving the
dueLPA 2725/2005 Page 37 of 40
32. In the light of the above decision in Paschimanchal
Vidyut Vitaran Nigam Limited the legal position that
emerges is that where there are statutory rules governing
the conditions relating to sanction of a connection for supply
of electricity, the distribution company can insist upon prior
fulfilment of the requirement of such rules and regulations
before granting a fresh connection. Even if the rules are
silent, it can stipulate such terms and conditions as it deems
fit and proper to regulate its transaction and dealings. So
long as such rules and regulations or terms and conditions
are not arbitrary and unreasonable, the Courts will not
interfere with them.
33. In our view, the learned single Judge committed an
error in holding that the outstanding dues of earlier
owner/occupier cannot be realised from the new
owner/occupier unless there were mala fides of the old
consumer. The question of mala fides does not arise when
there is a statutory provision. We may add that there is no
requirement in law for the distribution company to first
initiate recovery proceedings by filing a civil suit against the
old consumer before disconnecting the electricity supply. In
Swastic Industries v. MSEB (1997) 9 SCC 465 the
Supreme Court observed:
LPA 2725/2005 Page 38 of 40
“It would, thus, be clear that the right to
recover the charges is one part of it and
right to discontinue supply of electrical
energy to the consumer who neglects to
pay charges is another part of it. The right
to file a suit is a matter of option given to
the licensee, the Electricity Board.
Therefore, the mere fact that there is a
right given to the Board to file the Suit and
the limitation has been prescribed to file
the suit, it does not take away the right
conferred on the Board under Section 24 to
make demand for payment of the charges
and on neglecting to pay the same they
have the power to discontinue the supply or
cut off the supply, as the case may be,
when the consumer neglects to pay the
charges.”
34. In our opinion, the arrears of electricity charges
outstanding in respect of electricity supply to the premises
cannot be equated with contractual claim of damages, as
held by the learned single Judge relying upon the decision of
the Supreme Court in Raman Iron Foundry (supra). The
said decision is no longer good law in view of the subsequent
decision in H.M.Kamaluddin Ansari v. Union of India
(supra). That apart, as pointed out in Isha Marbles case,
electricity is a public property and hence the law in its
majesty benignly protects public property and behoves
everyone to respect public property. Hence, the courts must
adopt the interpretation which furthers the preservation and
protection of public property.
LPA 2725/2005 Page 39 of 40
CONCLUSION
35. For the foregoing reasons, we hold that in terms of
clause 2.1(iv) of the General Conditions of Supply forming
part of the Tariff Order dated May 23, 2001 if there are
electricity dues against the previous owner or occupant of a
premises who transfers the premises to a new owner or
occupant, the new owner or occupant applying for a fresh
electricity connection can be compelled by the Distribution
company to pay the arrears of electricity dues of the
previous owner or occupant and the distribution company
can refuse to supply electricity to the premises on account of
such non-payment.
36. In the result, the appeal succeeds. The impugned
judgment of the learned single Judge in WP (Civil) No. 2479
of 2003 is set aside. The first respondent shall pay the costs
of the appellant, quantified at Rs.25,000/-.
CHIEF JUSTICE
S.N.AGGARWAL, J
JULY 2nd, 2009 S.MURALIDAHR, J
"v"
LPA 2725/2005 Page 40 of 40