MANISH KUMAR v. UNION OF INDIA AND ANOTHER
Tools
- Court
- Supreme Court of India
- Decided
- Bench
- ROHINTON FALI NARIMAN, NAVIN SINHA and K. M. JOSEPH
- Citation
- [2021] 14 S.C.R. 895
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Headnote — Supreme Court Reports (editorial summary, not part of the judgment)
(Writ Petition (C) No.26 of 2020) Insolvency and Bankruptcy Code (Amendment) Act, 2020 – s.3 –s.3 of the impugned amendment, amended s.7(1) of the C Insolvency and Bankruptcy Code, 2016, incorporating three provisos to s.7(1) – Under the second proviso, a new threshold was declared for an allottee to move an application u/s.7 for trigerring the insolvency resolution process under the Code – The second proviso provided that for financial creditors who were allottees under a real estate project, an application for initiating corporate insolvency resolution process against the corporate debtor was to be filed jointly by not less than one hundred of such allottees under the same real estate project or not less than ten per cent of the total number of such allottees under the same real estate project, whichever is less – Challenge to the second proviso to s.7(1) –
Held
Not tenable – The object of the Statute, admittedly, is to ensure that there is a critical mass of persons (allottees), who agree that the time is ripe to invoke the Code and to submit to the inexorable processes under the Code, with all its attendant perils – The rationale behind, confining allottees to the same real estate project, is to promote the object of the Code – Once the threshold requirement can pass muster when tested in the anvil of a challenge based on Arts. 14, 19 and 21, then, there is both logic and reason behind the legislative value judgment that the allottees, who must join the application under the impugned provisos, must be related to the same real estate project – Allottees under real estate projects are financial creditors, but they possess certain characteristics, which set them apart from generality of the financial creditors, such as numerosity; heterogeneity; and individuality in decision making – If a single allottee, as a financial creditor, is allowed to move an application u/s.7, the interests of all the other allottees may be put in peril – In the circumstances, if the Legislature, taking into H 895
A consideration, the sheer numbers of a group of creditors, viz., the allottees of real estate projects, finds this to be an intelligible differentia, which distinguishes the allottees from the other financial creditors, who are not found to possess the characteristics of numerosity, then, it is not for this Court to sit in judgment over the wisdom of such a measure – The allottee continues to be a financial creditor – All that is envisaged is the legislative value judgment that a critical mass is indispensable for allottees to be present before the Code, can be activised – The purport of the critical mass of applicants would ensure that a reasonable number of persons similarly circumstanced, form the view that despite the remedies available under the RERA or the Consumer Protection Act or a civil suit, the invoking of the Code is the only way out, in a particular case – If the Legislature felt that having regard to the consequences of an application under the Code, when such a large group of persons, pull at each other, an additional threshold be erected for exercising the right u/s.7, certainly, it cannot suffer a constitutional veto at the hands of Court exercising judicial review of legislation – This is not a case where the right of the allottee is completely taken away – All that has happened is a half-way house is built between extreme positions, viz., denying the right altogether to the allottee to move the application u/s.7 of the Code and giving an unbridled license to a single person to hold the real estate project and all the stakeholders thereunder hostage to a proceeding under the Code –Insolvency and Bankruptcy Code, 2016 – s.7. Insolvency and Bankruptcy Code (Amendment) Act, 2020 – s.3 – s.3 of the impugned amendment, amended s.7(1) of the F Insolvency and Bankruptcy Code, 2016, incorporating three provisos to s.7(1) – The first proviso provided that for financial creditors, referred to in clauses (a) and (b) of sub-section (6A) of s.21, an application for initiating corporate insolvency resolution process against the corporate debtor shall be filed jointly by not less than one hundred of such creditors in the same class or not less than ten per cent of the total number of such creditors in the same class, whichever is less – Challenge to –
Held
The first proviso is invulnerable – The legislative understanding is clear that in regard to such creditors bearing the hallmark of large numbers they are required to be treated differently – If they are not treated differently it would spell chaos and the objects of the Code would not be fulfilled
– It is an extension of this basic principle which has led to the insertion of the impugned proviso – Insisting on a threshold in regard to these categories of creditors would lead to the halt to indiscriminate litigation which would result in an uncontrollable docket explosion as far as the authorities which work the Code are concerned – The debtor who is apparently stressed is relieved of the last straw on the camel’s back, as it were, by halting individual creditors whose views are not shared even by a reasonable number of its peers rushing in with applications – Again, as in the case of the allottees, this is not a situation where while treating them as financial creditors they are totally deprived of the right to apply under s.7 as part of the legislative scheme – The legislative policy reflects an attempt at shielding the corporate debtor from what it considers would be either for frivolous or avoidable applications – All that the amendment is likely to ensure is that the filing of the application is preceded by a consensus at least by a minuscule percentage of similarly placed creditors that the time has come for undertaking a legal odyssey which is beset with perils for the applicants themselves apart from others – As far as the percentage of applicants contemplated under the proviso it is clear that it cannot be dubbed as an arbitrary or capricious figure – Insolvency and Bankruptcy Code, 2016 – s.7. Insolvency and Bankruptcy Code (Amendment) Act, 2020 – E s.4 – s.4 of the impugned amendment, incorporated an additional Explanation in s.11 of the Code – While s.11 is about persons not entitled to make application for initiating corporate insolvency resolution process, the additional Explanation provided that nothing in section 11 prevented a corporate debtor from initiating corporate insolvency resolution process against another corporate debtor –
Held
The provisions of the impugned Explanation clearly amount to a clarificatory amendment – A clarificatory amendment is retrospective in nature – The Explanation merely makes the intention of the Legislature clear beyond the pale of doubt – The argument of the petitioners that the amendment came into force only on G 28.12.2019 and, therefore, in respect to applications filed under ss.7, 9 or 10, it will not have any bearing, cannot be accepted – The Explanation, in the facts of these cases, is clearly clarificatory in nature and it will certainly apply to all pending applications also – The intention of the Legislature was always to target the corporate
A debtor only insofar as it purported to prohibit application by the corporate debtor against itself, to prevent abuse of the provisions of the Code – It could never had been the intention of the Legislature to create an obstacle in the path of the corporate debtor, in any of the circumstances contained in s.11, from maximizing its assets by trying to recover the liabilities due to it from others – Not only does it go against the basic commonsense view but it would frustrate the very object of the Code, if a corporate debtor is prevented from invoking the provisions of the Code either by itself or through his resolution professional, who at later stage, may, don the mantle of its liquidator – Insolvency and Bankruptcy Code, 2016 – s.11, C Explanation II. Insolvency and Bankruptcy Code (Amendment) Act, 2020 – s.10 – s.10 of the impugned amendment inserts s.32A in the Code – It was contended that but for s.32A, the properties which are acquired could be attached but that is pre-empted by s.32A – The petitioners contend that immunity granted to the corporate debtors and its assets acquired from the proceeds of crimes and any criminal liability arising from the offences of the erstwhile management for the offences committed prior to initiation of CIRP and approval of the resolution plan by the adjudicating authority further jeopardizes the interest of the allottees/creditors –
Held
No case whatsoever is made out to seek invalidation of s.32A – The boundaries of this Court’s jurisdiction are clear – The wisdom of the legislation is not open to judicial review – Having regard to the object of the Code, the experience of the working of the code, the interests of all stakeholders including most importantly the imperative need to attract resolution applicants who would not shy away from offering reasonable and fair value as part of the resolution plan if the legislature thought that immunity be granted to the corporate debtor as also its property, it hardly furnishes a ground for this Court to interfere – The provision is carefully thought out – It is not as if the wrongdoers are allowed to get away – They remain liable – The extinguishment of the criminal liability of the corporate debtor is apparently important to the new management to make a clean break with the past and start on a clean slate – The immunity is premised on various conditions being fulfilled – There must be a resolution plan – It must be approved – There must be a change in the control of the corporate debtor – The new management cannot be the disguised avatar of the old management – It cannot even be the related party of the corporate debtor – The new management cannot be the subject matter of an investigation which has resulted in material showing abetment or conspiracy for the commission of the offence and the report or complaint filed thereto – These ingredients are also insisted upon for claiming exemption of the bar from actions against the property – Significantly every person who was associated with the corporate debtor in any manner and who was directly or indirectly involved in the commission of the offence in terms of the report submitted continues to be liable to be prosecuted and punished for the offence committed by the corporate debtor – The corporate debtor and its property in the context of the scheme of the code constitute a distinct subject matter justifying the special treatment accorded to them – Creation of a criminal offence as also abolishing criminal liability must ordinarily be left to the judgement of the legislature – Attaining public welfare very often needs delicate balancing of conflicting interests – As to what priority must be accorded to which interest must remain a legislative value judgement and if seemingly the legislature in its pursuit of the greater good appears to jettison the interests of some it cannot unless it strikingly ill squares with some constitutional mandate suffer invalidation – There is no basis at all to impugn the Section on the ground that it violates Articles 19, 21 or 300A – Insolvency and Bankruptcy Code, E 2016 – s.32A.
Catchwords
Insolvency and Bankruptcy Code (Amendment) Act, 2020 – s.3 –s.3 of the impugned amendment, amended s.7(1) of the Insolvency and Bankruptcy Code, 2016 – Amendment by s.3 of the impugned amendment incorporated three provisos to s.7(1) – The third proviso provided that where an application for initiating the corporate insolvency resolution process against a corporate debtor has been filed by a financial creditor referred to in the first and second provisos and has not been admitted by the Adjudicating Authority before the commencement of the Insolvency and Bankruptcy Code (Amendment) Act, 2020, such application shall be modified to comply with the requirements of the first or second proviso within thirty days of the commencement of the said Act, failing which the application shall be deemed to be withdrawn before its admission –
Held
The third proviso is a one-time affair – It is intended only to deal with those applications, u/s.7, which were
Catchwords
Imposing the threshold requirement under the 3rd proviso, is not a A mere matter of procedure – It impairs vested rights – Prescribing a time limit in regard to pending applications, cannot be, per se, described as arbitrary, as otherwise, it would be an endless and uncertain procedure – The applications would remain part of the docket and also become a Damocles Sword overhanging the debtor and the other stakeholders with deleterious consequences also qua the objects of the Code – Insolvency and Bankruptcy Code, 2016 – s.7. Insolvency and Bankruptcy Code, 2016 – Need of –
Held
The Code was an imperative need for the nation to try and catch up with the rest of the world, be it in the matter of ease of doing business, elevating the rate of recovery of loans, maximization of the assets of ailing concerns and also, the balancing the interests of all stakeholders. Amendment – Clarificatory amendment – Is retrospective in nature. D
Catchwords
Legislation – Plenary Legislation – Challenge to – Grounds – Discussed. Legislation – Plenary Legislation – Challenge to – On ground of malice –
Held
While malice may furnish a ground in an appropriate case to veto administrative action, malice does not furnish a ground to attack a plenary law. Dismissing the writ petitions and transferred case, the Court HELD:1.1. The grounds on which plenary law can be challenged are well established. A law can be successfully challenged if contrary to the division of powers, either the Parliament or the State Legislature usurps power that does not fall within its domain thus, rendering it incompetent to make such law. Secondly, a law made contravening Fundamental Rights guaranteed under Part III of the Constitution of India would be visited with unconstitutionality and declared void to the extent of its contravention. Needless to say, a law within the meaning of Article 19 of the Constitution would remain valid qua a non-citizen. Thirdly, apart from Fundamental Rights, the supremacy of the
Reporter's headnote (continued) and case details
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A filed prior to 28.12.2019, when, by way of the impugned Ordinance, initially, the threshold requirements came to be introduced by the first and the second impugned provisos – In other words, the legislative intention was to ensure that no application u/s.7 could be filed after 28.12.2019, except upon complying with the requirements in the first and second provisos – The Legislature did B not stop there – It has clearly intended that the threshold requirement it imposed, will apply to all those applications, which were filed, prior to 28.12.2019 as well, subject to the exception that the applications, so filed, had not been admitted, u/s.7(5) – In other words, the Legislature intended that in every application, filed under C s.7, by the creditors covered by the first proviso and by the allottees governed by the second proviso, should also be embraced by the newly imposed threshold requirement for which, it was intended, should be complied within 30 days from the date of the Ordinance – However, this restriction was not to apply to those applications which stood admitted as on the date of the Ordinance – It is also clear that the consequence of failure to comply with the threshold requirement, in regard to applications, which have been filed earlier, was that they would stand withdrawn – When applications were filed under the unamended provisions of s.7, at any rate it would transform into a vested right – The vested right is to proceed with the action till its logical and legal conclusion – No doubt, there may not be a vested right as regard mere procedure and while limitation, ordinarily, belongs to the domain of procedure, should new law shorten the existing period of limitation, such a law would not operate in regard to the right of action which is vested – Every sovereign Legislature is clothed with competence to make retrospective laws – It is open to the Legislature, while making retrospective law, to take away vested rights – If a vested right can be taken away by a retrospective law, there can be no reason why the Legislature cannot modify the vested rights – The imposition of a threshold requirement being a mandatory and irreducible minimum even, if it is to be achieved as and after the date of the amendment, constitutes an intrusion into the substantive right of action vested in the individual creditor – The action of the creditor was not a completed transaction – As regards his conduct in the past, viz., moving u/s.7, it is incomplete but the action was commenced – But the law (the 3rd proviso) impairs the past action qua the future – H
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A Constitution vis-a-vis the ordinary legislation, even when the law is plenary legislation, is preserved with a view that legislation must be in conformity with the other provisions of the Constitution. [Para 47][955-C-F]
1.2. A plenary law if it is found to be manifestly arbitrary it becomes vulnerable. [Para 50][958-C]
1.3. A law, be it the offspring of a Legislature, it falls foul of Article 14 if it is found to be vague. [Para 51][958-E]
1.4. It has been urged that the law was created by way of pandering to the real estate lobby and succumbing to their pressure or by way of placating their vested interests. Such an argument is nothing but a thinly disguised attempt at questioning the law of the Legislature based on malice. While malice may furnish a ground in an appropriate case to veto administrative action it is trite that malice does not furnish a ground to attack a plenary law. [Para 52][958-G; 959-A, B-C]
1.5. A supreme legislature cannot be cribbed, cabined or confined by the doctrine of promissory estoppel or estoppel. It acts as a sovereign body. The theory of promissory estoppel, on the one hand, has witnessed an incredible trajectory of growth but it is incontestable that it serves as an effective deterrent to prevent injustice from a Government or its agencies which seek to resile from a representation made by them, without just cause. [Para 54][959-E-G] F 1.6. A mere charge of either under inclusiveness or over inclusiveness which is not difficult to make hardly suffices to persuade the court to strike down a law. There is a wide latitude allowed in the legislature in these matters. The examination cannot be extended to find out whether there is mathematical G precision or wooden equality established. The working of the statute may produce further issues, all of it may not be fully perceived as which may not be wholly foreseen by the law giver. The freedom to experiment must be conceded to the legislature, particularly, in economic laws. If problems emerge in the working H of law and which require legislative intervention, the court cannot be oblivious to the power of the legislative to respond by stepping in with necessary amendment. There is nothing like a perfect law and as with all human institutions there are bound to be imperfections. What is significant is however for the court ruling on constitutionality, the law must present a clear departure from constitutional limits. [Para 121][1005-E-H]
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1.7. The mere difficulties in given cases, to comply with a law can hardly furnish a ground to strike it down. As to what would constitute the real estate project, it must depend on the terms & conditions and scope of a particular real estate project in which allottees are a part of. These are factual matters to be considered in the facts of each case. [Para 124][1006-G-H]
2. The rationale behind, confining allottees to the same real estate project, is to promote the object of the Code. Once the threshold requirement can pass muster when tested in the anvil of a challenge based on Articles 14, 19 and 21, then, there is both logic and reason behind the legislative value judgment that the allottees, who must join the application under the impugned provisos, must be related to the same real estate project. The connection with the same real estate project is crucial to the determination of the critical mass, which Legislature has in mind, as a part of its scheme, to streamline the working of the Code. If it is to embrace the total number of allottees of all projects, which a Promoter of a real estate project, may be having, in one sense, it will make the task of the applicant himself, more cumbersome. F It becomes a sword, which will cut both ways. This is for the reason that the complaints, relating to different projects, may be different. With regard to one project of a Promoter of real estate project, maybe, in the advanced stage, the allottees in a particular project, may not have much of a complaint. The complaint, in relation to yet another project, may be more serious. If the G complaint in respect of the latter, attracts the attention of a critical mass of allottees, and the proposed applicant is part of that project in the said project, then, it may be easier for the allottees to fulfil the statutory mantra in the impugned provisos, with the junction of likeminded souls. If, on the other hand, the requirement was H
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A to make a search for allottees of different projects, as would be the case, if the entirety of the allottees, under different projects, were to be reckoned, the task would have been much more cumbersome. The requirement of the allottees, being drawn from the same project, stands to reason and also does not suffer from B any constitutional blemish. [Para 140][1013-H; 1014-A-E]
3. There can be no doubt that the requirement of a threshold under the impugned proviso, in Section 7(1), must be fulfilled as on the date of the filing of the application. [Para 141][1014-G-H]
C 4. In the matter of presentation of an application under Section 7, if the threshold requirement, under the impugned provisos, stands fulfilled, the requirement of the law must be treated as fulfilled. The contention, relating to the ambiguity and consequent unworkability and the resultant arbitrariness, is clearly untenable. If an allottee is able to, in other words, satisfy the requirements, as on the date of the presentation, the requirement of the impugned law is fulfilled. [Para 143][1016-A- B]
5. It does not matter whether a person has one or more allotments in his name or in the name of his family members. As long as there are independent allotments made to him or his family members, all of them would qualify as separate allottees and they would count both in the calculation of the total allotments, as also in reckoning the figure of hundred allottees or one-tenth of the allottees, whichever is less. [Para 146][1017-F-G] F
6. The object of the Statute, admittedly, is to ensure that there is a critical mass of persons (allottees), who agree that the time is ripe to invoke the Code and to submit to the inexorable processes under the Code, with all its attendant perils. The object of maintaining speed in the CIRP and also the balancing of interest G of all the stakeholders, would be promoted by the view that as in the case of the Companies Acts, 1956 and 2013, that for the purpose of complying with the impugned provisos in Section 7(1), while the allottee can be of any of the categories, fulfilling the description of an allottee in Section 2(d) of RERA, joint allottees of a single apartment, will be treated as only one allottee. Any other view can lead to clear abuse and defeating of the object of the Code. If, for instance, a single apartment is taken in the name of hundred persons, a single allottee, who in turn comprise of relatives or family members or friends, can move an application, even though the position ante would be restored, which means that only the allottee qua one apartment, plot or building, is before the Authority and it would not really represent a critical mass of the allottees in the real estate project concerned. [Para 147][1018- B-E] C
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7. The Central Government, having regard to the scheme of Companies Act, is intricately interconnected with the management of the companies. It had powers of investigation into the affairs of the companies under Section 235 and Section
237. The purport of Sections 397 and 398 include the conduct of the affairs of the company in any manner prejudicial to the public D interest or also, no doubt, prejudicial to member or members. In such circumstances, clothing the Central Government with the power to waive the requirement and permitting the application to be presented by even a single member, is in sync with the scheme of the Companies Act. The role of the Central Government E is different under the Code. In fact, the Central Government does not have any role, as such under the Code. It acts only through the designated Authorities under the Code. The Code is about insolvency resolution and on failure liquidation. The scheme of the Code is unique and its objects are vividly different from that of the Companies Act. Consequently, if the Legislature felt that F threshold requirement representing a critical mass of allottees, alone would satisfy the requirement of a valid institution of an application under Section 7, it cannot be dubbed as either discriminatory or arbitrary. [Para 151][1019-D-G] G
8. Invalidating a law made by a competent Legislature, on the basis of what the Court may be induced to conclude, as a better arrangement or a morewise and even fairer system, is constitutionally impermissible. If, the impugned provisions are otherwise not infirm, they must pass muster. [Para 157][1023-E] H
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A 9. The law giver has created a mechanism, namely, the association of allottees through which the allottees are expected to gather information about the status of the allotments including the names and addresses of the allottees. One cannot proceed on the basis in a case which involves a challenge to a statute that the information to be gathered under the statute will not be available on the basis that the statute will not be worked as contemplated by the law giver. [Para 163][1030-C-D]
10. The law does not interdict the creation of a class within a class absolutely. Should there be a rational basis for creating a sub-class within a class, then, it is not impermissible. A class within a sub-class, is indeed not antithetical to the guarantee of equality under Article 14. [Para 188][1046-G-H; 1047-B]
11. Allottees are, indeed, financial creditors. They do possess certain characteristics, however, which appear to have appealed to the Legislature as setting them apart from the generality of financial creditors. These features, which set them apart, have been clearly indicated in the stand of the Union. They are: (i) Numerosity; (ii) Heterogeneity; and (iii) The individuality in decision making. [Para 189][1047-B-D]
12. In the case of the allottees of a real estate project, it is the approach of the Legislature that in a real estate project there would be large number of allottees. There can be hundreds or even thousands of allottees in a project. If a single allottee, as a financial creditor, is allowed to move an application under Section 7, the interests of all the other allottees may be put in peril. This is for the reason that as stakeholders in the real estate project, having invested money and time and looking forward to obtaining possession of the flat or apartment and faced with the same state of affairs as the allottee, who moves the application under Section 7 of the Code, the other allottees may have a different take of the whole scenario. Some of them may approach the Authority under the RERA. Others may, instead, resort to the For a under the Consumer Protection Act, though, the remedy of a civil suit is, no doubt, not ruled out. Ordinarily, the allottee would have the remedies available under RERA or the Consumer
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Protection Act, as the more effective option. In such circumstances, if the Legislature, taking into consideration, the sheer numbers of a group of creditors, viz., the allottees of real estate projects, finds this to be an intelligible differentia, which distinguishes the allottees from the other financial creditors, who are not found to possess the characteristics of numerosity, then, it is not for this Court to sit in judgment over the wisdom of such a measure. [Para 192][1049-B-E]
13. The enquiry must not end with finding that there is an intelligible differentia, to be found in the numerosity, heterogeneity and individuality in decision-making of the allottees. The law further requires that the differentia must have bear a rational nexus with the object of the law. [Para 193][1049-F]
14. The object of the law is clear. A radical departure was contemplated from the erstwhile regime, which was essentially contained in The Sick Industrial Companies (Special Provisions) Act, 1985, and which manifested a deep malaise, which impacted the economy itself. To put it shortly, the procedures involved under the Act, simply meant procrastination in matters, where speed and dynamic decisions were the crying need of the hour. The value of the assets of the Company in distress, was wasted away both by the inexorable and swift passage of time and tardy rate at which the forums responded to the problem of financial distress. The Code was an imperative need for the nation to try and catch up with the rest of the world, be it in the matter of ease of doing business, elevating the rate of recovery of loans, maximization of the assets of ailing concerns and also, the balancing the interests of all stakeholders. The Code purports to achieve the object of maximization of the assets of corporate bodies, inter alia, which have slipped into insolvency. Present a default, which, no doubt, is not barred by time (subject to the power of the Authority under Section 5 of the Limitation Act), the Insolvency Resolution Process can be triggered. [Para G 194][1049-G-H; 1050-A-C]
15. A Resolution Plan is intended to resuscitate an ailing corporate debtor and keep it going as a going concern. The
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A importance of rescuing ailing businesses in the form of infusing new life in such concerns, cannot be understated. Its significance lies in various directions. There would be various categories of creditors, of which, the legislative choice appears to show some degree of preference for the financial creditors, particularly in the form of banks and financial institutions. One of the chief goals of the Code is to prevent the loss of the value of capital. If the recovery of the loan is effected at the earliest, it translates into the availability of the recovered capital for being lent to other entrepreneurs, and this is an aspect, which goes to the root of the matter. With every passing hour, not unnaturally, depreciation will claim its victim in the form of diminution of value of the assets. Should insolvency pass into the stage of liquidation, the loss is not only of the concerned businesses, but it also would represent a loss for the Nation. This is, undoubtedly, apart from the impairment of the interests of all stakeholders. The stakeholders would include the financial creditors and the operational creditors, as well. Employees of the failed business, would take a direct hit. Therefore, the Code accords the highest importance to speed in the matter of undergoing the process of insolvency. [Para 194][1050-F-H; 1051-A-B]
16. The speed, with which the processes can be conducted and completed, is based on the volume of the litigation. The Adjudicating Authorities and the Appellate Bodies, viz., N.C.L.A.T., are authorities under other enactments, as well. They are hard-pressed for time. The matters, which are covered by the Code, may present convoluted facts. The issues may bristle with complications, both in points of law and also facts. If, out of a large body of financial creditors belonging to a sub-group, as for instance allottees of a real estate project, were to be given the freedom to activise the Code, then, the possibility of multiple individual actions, is a spectre, which the Legislature, must be presumed to be aware of. In other words, the Legislature became alive to the peril of entire object of the Code, being derailed by permitting the individual players crowding the docket of the Authorities under the Code, and resultantly, reviving the very state of affairs, which compelled the Legislature to script a new dawn in this area of law. Instead, having regard to the numerosity, the Legislature has thought it fit to adopt a balanced approach by not taking the allottee out of the fold of the financial creditors altogether. The allottee continues to be a financial creditor. All that is envisaged is the legislative value judgment that a critical mass is indispensable for allottees to be present before the Code, can be activised. The purport of the critical mass of applicants would ensure that a reasonable number of persons similarly circumstanced, form the view that despite the remedies available under the RERA or the Consumer Protection Act or a civil suit, the invoking of the Code is the only way out, in a particular case. [Para 196][1051-D-H; 1052-A-B]
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17. One of the objects is the balancing of the interests of all stakeholders. By imposing a threshold limit of either hundred allottees or if the number of allottees going by the criteria of one-tenth of the allottees is, even less than hundred, then, the said number of allottees must agree to invoke the Code. This is again, based on the intelligible differentia of heterogeneity. By heterogeneity, is meant, differences between a seemingly homogenous group. All allottees of a real estate project form a class. All of them have stakes in the prompt and effective completion of the real estate project. There is a plurality of remedies, which the law provides. More importantly, the outcome of activising the Code, is almost like an uncertain wager. The outcome of invoking the Code by individual allottees would be apart from clogging the dockets of the Adjudicating Authorities with even more voluminous files leading to greater delay, that at the instance of such individual allottees, what would be perceived as an avoidable calamity, is perpetuated. In other words, while a vast majority of allottees may see reason in either giving time and reposing faith in existing management of real estate project or successfully invoking the other remedies available to them, an individual allottee, out of the heterogenous group, would throw the spanner in the works and bring the entire real estate project itself to a possible doom. [Para 196][1052-D-H; 1053-A-B] G
18. The individual allottee, with a high-level of subjectivity in decision-making, may take a plunge at invoking the Code, without having a more global view of the consequences, which will follow. Any such attempt would only be dubbed as frivolous.
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A This attempt by individual allottees would have the following consequences: i. It would crowd an already heavy docket; ii. It would consequently slow down the processes under the Code, even with respect to matters, which may be more B genuine and require greater and more timely attention; iii. It will defeat the object of the balancing the interests of all stakeholders. [Para 197][1053-E-G]
19. The law under scrutiny is an economic measure. In C dealing with the challenge on the anvil of Article 14, the Court will not adopt a doctrinaire approach. A law cannot operate in a vacuum. In the concrete world, when the law is put into motion in practical experiences, bottlenecks that would flow from its application, are best envisaged by the Law Givers. Solutions to vexed problems made manifest through experience, would indeed D require a good deal of experimentation, as long as it passes muster in law. It is no part of a court’s function to probe into what it considers to be more wise or a better way to deal with a problem. In economic matters, the wider latitude given to the Law Giver is based on sound principle and tested logic over time. [Para E 199][1054-G-H; 1055-A-B]
20. There cannot be any doubt that intrinsically a financial creditor and an operational creditor are distinct. An operational creditor is one to whom money is due on account of goods or services supplied to the debtor. The financial creditor on the other hand, is so described, on account of there being the element of borrowing. This distinction is indisputable. What is unique to the real estate developer vis-a-vis operational debts is that the developer is the debtor as an allottee funds his own apartment by paying amounts in advance. On the other hand, in case of operational debt, the person who has supplied the goods and services, becomes the creditor and the corporate debtor is one who has availed such services. Another distinction is that an operational creditor has no interest or stake in the corporate debtor. The allottee is, on the other hand, vitally concerned with the financial health of the corporate debtor. Should financial ruin occur, the real estate project will come to a nought. Should such H an event take place also, the allottee would not be in a position A to either claim or get compensation or even refund with interest. Thirdly, there is no consideration for the time value of money in the operational debt. This is not so in the case of an allottee. [Para 212][1065-F-H; 1066-A-C]
p. 911
21. An action under the Code by way of an application under B Section 7 is an action in rem. The recovery of the amounts paid is not what is primarily contemplated under the Code. The vires of the impugned provisions must be judged without turning a blind eye to the distinction between the wisdom and the legislative value judgment behind the Statute being immune from judicial scrutiny on the one hand and a hostile discrimination falling foul of the mandate of equality under Article 14, being fatal to the Statute. In this case, while it may be true that the allottees are unsecured creditors and in that regard, they are similar to the operational creditors and it also may be true that many contracts under real estate projects, may not involve large sums as the subject matter of advances by banks and other financial institutions, the similarity between the two ends there. What is of greater importance is the distinctions and the most vital point which sets them apart, in the matter of pronouncing on the vires of the provisos under Section 7 is the numerosity of the allottees, and what is more not being homogeneous in what they want in a E particular situation, since the law has indeed endowed the allottees with different remedies, having different implications, be it under the Consumer Protection Act or under RERA. If the Legislature felt that having regard to the consequences of an application under the Code, when such a large group of persons, pull at each other, an additional threshold be erected for exercising the right under Section 7, certainly, it cannot suffer a constitutional veto at the hands of Court exercising judicial review of legislation. [Para 213][1066-F; 1067-B-F]
22. This is not a case where the right of the allottee is completely taken away. All that has happened is a half-way house is built between extreme positions, viz., denying the right altogether to the allottee to move the application under Section 7 of the Code and giving an unbridled license to a single person to hold the real estate project and all the stakeholders H
p. 912
A thereunder hostage to a proceeding under the Code which must certainly pass inexorably within a stipulated period of time should circumstances exists under Section 33 into corporate death with the unavoidable consequence of all allottees and not merely the applicant under Section 7 being visited with payment out of the liquidation value, the amounts which are only due to the unsecured creditor. The point of distinction, between a financial creditor in this case, the allottees of a real estate project and the operational creditors, as contained in Section 7 on the one hand and Sections 8 and 9 are preserved. In other words, the operational creditor still has to cross the threshold of not being shut off from the application not being processed in the teeth of the defense allowed to the corporate debtor in regard to an operational creditor. All that has happened is the Legislature in its wisdom has found that the greater good lies in conditioning an absolute right which existed in favour of an allottee by requirements which would ensure some certain element of consensus among the allottees. D The requirement is a mere one-tenth of the allottees. This is a number which goes to policy and lies exclusively within the wisdom of the Legislature. [Para 214][1067-G-H; 1068-A-D]
23. The first proviso is invulnerable. The impact of the insertion of sub-section 3A in Section 25A is to be noticed. Section E 25A, inter alia, deals with the exercise of rights and the liabilities of authorised representative of creditors like debenture holders and allottees. After the insertion of sub-section 3A in section 25A, the majority of the creditors of a class is permitted to call the shots. It’s view, in other words, will hold sway. This is subject F to the Code otherwise. The legislative understanding is clear that in regard to such creditors bearing the hallmark of large numbers they are required to be treated differently. If they are not treated differently it would spell chaos and the objects of the Code would not be fulfilled. It is an extension of this basic principle which has led to the insertion of the impugned proviso. G Insisting on a threshold in regard to these categories of creditors would lead to the halt to indiscriminate litigation which would result in an uncontrollable docket explosion as far as the authorities which work the Code are concerned. The debtor who is apparently stressed is relieved of the last straw on the camel’s H back, as it were, by halting individual creditors whose views are not shared even by a reasonable number of its peers rushing in with applications. Again, as in the case of the allottees, this is not a situation where while treating them as financial creditors they are totally deprived of the right to apply under Section 7 as part of the legislative scheme. The legislative policy reflects an attempt at shielding the corporate debtor from what it considers would be either for frivolous or avoidable applications. What we mean by avoidable applications is a decision which would not be taken by similarly placed creditors keeping in mind the consequences that would ensue not only in regard to persons falling in the same category but also the generality of creditors and other stakeholders. All that the amendment is likely to ensure is that the filing of the application is preceded by a consensus at least by a minuscule percentage of similarly placed creditors that the time has come for undertaking a legal odyssey which is beset with perils for the applicants themselves apart from others. As far as the percentage of applicants contemplated under the proviso it is clear that it cannot be dubbed as an arbitrary or capricious figure. The legislature is not wanting in similar requirements under other laws. The provisions of the Companies Act, 2013 and its predecessors contained similar provisions. Allowing what is described as ‘lone Ranger’ applications beset with extremely serious ramifications which are at cross purposes with the objects of the code. This is apart from it in particular spelling avoidable doom for the interest of the creditors falling in the same categories. The object of speed in deciding CIRP proceedings would also be achieved by applying the threshold to debenture holders and security holders. The dividing line between wisdom or policy of the legislature and limitation placed by the Constitution must not be overlooked. [Para 220][1071-D-H; 1072-A-E]
p. 913
24. The intention of the Legislature was always to target the corporate debtor only insofar as it purported to prohibit application by the corporate debtor against itself, to prevent abuse of the provisions of the Code. It could never had been the intention of the Legislature to create an obstacle in the path of the corporate debtor, in any of the circumstances contained in Section 11, from maximizing its assets by trying to recover the liabilities due to it from others. Not only does it go against the H
p. 914
A basic commonsense view but it would frustrate the very object of the Code, if a corporate debtor is prevented from invoking the provisionsof the Code either by itself or through his resolution professional, who at later stage, may, don the mantle of its liquidator. The provisions of the impugned Explanation, thus, clearly amount to a clarificatory amendment. A clarificatory B amendment, it is not even in dispute, is retrospective in nature. The Explanation merely makes the intention of the Legislature clear beyond the pale of doubt. The argument of the petitioners that the amendment came into force only on 28.12.2019 and, therefore, in respect to applications filed under Sections 7, 9 or C 10, it will not have any bearing, cannot be accepted. The Explanation, in the facts of these cases, is clearly clarificatory in nature and it will certainly apply to all pending applications also. [Para 243][1084-E-H; 1085-A]
25. No case whatsoever is made out to seek invalidation of D Section 32A. The boundaries of this Court’s jurisdiction are clear. The wisdom of the legislation is not open to judicial review. Having regard to the object of the Code, the experience of the working of the code, the interests of all stakeholders including most importantly the imperative need to attract resolution applicants who would not shy away from offering reasonable and fair value as part of the resolution plan if the legislature thought that immunity be granted to the corporate debtor as also its property, it hardly furnishes a ground for this this Court to interfere. The provision is carefully thought out. It is not as if the wrongdoers are allowed to get away. They remain liable. The extinguishment of the criminal liability of the corporate debtor is apparently important to the new management to make a clean break with the past and start on a clean slate. One must also not overlook the principle that the impugned provision is part of an economic measure. As far as protection afforded to the property is concerned there is clearly a rationale behind it. Having regard to the object of the statute one hardly sees any manifest arbitrariness in the provision. [Para 257][1098-B-D, F]
27. The immunity is premised on various conditions being fulfilled. There must be a resolution plan. It must be approved. There must be a change in the control of the corporate debtor. H
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The new management cannot be the disguised avatar of the old management. It cannot even be the related party of the corporate debtor. The new management cannot be the subject matter of an investigation which has resulted in material showing abetment or conspiracy for the commission of the offence and the report or complaint filed thereto. These ingredients are also insisted upon for claiming exemption of the bar from actions against the property. Significantly every person who was associated with the corporate debtor in any manner and who was directly or indirectly involved in the commission of the offence in terms of the report submitted continues to be liable to be prosecuted and punished for the offence committed by the corporate debtor. The corporate debtor and its property in the context of the scheme of the code constitute a distinct subject matter justifying the special treatment accorded to them. Creation of a criminal offence as also abolishing criminal liability must ordinarily be left to the judgement of the legislature. Erecting a bar against action against the property of the corporate debtor when viewed in the larger context of the objectives sought to be achieved at the forefront of which is maximisation of the value of the assets which again is to be achieved at the earliest point of time cannot become the subject of judicial veto on the ground of violation of Article 14. Attaining public welfare very often needs delicate balancing of conflicting interests. As to what priority must be accorded to which interest must remain a legislative value judgement and if seemingly the legislature in its pursuit of the greater good appears to jettison the interests of some it cannot unless it strikingly ill squares with some constitutional mandate suffer invalidation. There is no basis at all to impugn the Section on the ground that it violates Articles 19, 21 or 300A. [Paras 258, 259][1098-F-H; 1099-A-E]
28. The third proviso is a one-time affair. It is intended only to deal with those applications, under Section 7, which were filed prior to 28.12.2019, when, by way of the impugned Ordinance, initially, the threshold requirements came to be introduced by the first and the second impugned provisos. In other words, the legislative intention was to ensure that no application under Section 7 could be filed after 28.12.2019, except upon complying with the requirements in the first and second provisos. H
p. 916
A The Legislature did not stop there. It has clearly intended that the threshold requirement it imposed, will apply to all those applications, which were filed, prior to 28.12.2019 as well, subject to the exception that the applications, so filed, had not been admitted, under Section 7(5). In other words, the Legislature intended that in every application, filed under Section 7, by the creditors covered by the first proviso and by the allottees governed by the second proviso, should also be embraced by the newly imposed threshold requirement for which, it was intended, should be complied within 30 days from the date of the Ordinance. However, this restriction was not to apply to those applications which stood admitted as on the date of the Ordinance. It is also clear that the consequence of failure to comply with the threshold requirement, in regard to applications, which have been filed earlier, was that they would stand withdrawn.[Para 261][1100-B- E]
D 29. Every sovereign Legislature is clothed with competence to make retrospective laws. It is open to the Legislature, while making retrospective law, to take away vested rights. If a vested right can be taken away by a retrospective law, there can be no reason why the Legislature cannot modify the vested rights. [Para 333][1145-G-H; 1146-A] E
30. The financial creditors covered by the 3rd proviso were clothed with a statutory right under Section 7. This right was available to be exercised by an individual creditor, by himself or jointly with others. The imposition of a threshold requirement being a mandatory and irreducible minimum even, if it is to be F achieved as and after the date of the amendment, constitutes an intrusion into the substantive right of action vested in the individual creditor. The action of the creditor was not a completed transaction. As regards his conduct in the past, viz., moving under Section 7, it is incomplete but the action was commenced. But G the law (the 3rd proviso) impairs the past action qua the future. Imposing the threshold requirement under the 3rd proviso, is not a mere matter of procedure. It impairs vested rights. It has conditioned the right instead, in the manner provided in the first and the second proviso. This Court has already upheld the first and second proviso, which, in fact, operates only in the future. In H that sense, the Legislature has purported to equate persons who had not filed applications with persons like the petitioners who had filed the applications under the unamended law. [Para 346][1149-F-H; 1150-A-B]
p. 917
31. The requirement of compliance with the threshold numerical requirements under the first and second proviso is an integral and inseparable part of the third proviso. [Para 347][Para 348][1150-E]
32. From the standpoint of public interest, every application maintained by a single applicant, is perceived as a veritable threat to the fulfilment of the objectives of the Code. The continuance of the applications could not, therefore, be in public interest. It is, as if, the Legislature intended to apply its brakes in the form of asking the applicants to obtain the consensus of a minimum number of similar stakeholders, before the applications could be further processed. [Para 359][1154-D-E] D
33. The law in question is an economic measure. This is a case where the Law Giver has not left anything to speculation or doubt. [Para 360][1155-B]
34. The Legislature has power to impair and take away vested rights. The limitation that flows, however, is from both E Article 14 and 19 read with Article 21. It flows from the Doctrine that the action of the State must be fair and reasonable. The question, as to validity of the retrospective law, is a matter to be judged on a consideration of the facts, the period of time, over which the retrospective law operates, the impact of the law on the vested rights, the public interest, the nature of the right, which is the subject matter of the law and the terms of the law. [Para 361][1155-D-F]
35. The nature of the right involved in this case, is the right of the financial creditors to move an application under Section 7. Though, Section 7 confers a right upon the financial creditor to file the application, the proceedings are one in rem. The Legislature was faced with the situation, where it felt that the requirement, as to maintainability of the application under Section 7, must, in regard to pending applications, be modified in the manner done. There is a determining principle, namely, the H
p. 918
A perception from experience about how the entire object of the Code would stand jeopardised if applications already filed could go on even when a fair and reasonable number of kindred souls are not available to support it. Once there is a principle, it cannot be capricious, excessive or disproportionate unless the time given under the proviso is manifestly arbitrary. A vested right under a statute can be taken away by a retrospective law. A right given under a statute can be taken away by another statute. There was considerable public interest behind such a law. The sheer numbers, in which applications proliferated, combined with the results it could produce, cannot be brushed aside as an irrational or capricious aspect to have been guided by in making the law. Being an economic measure, the wider latitude available to the Law Giver, cannot be lost sight of. [Para 362][1155-F-H; 1156-A- C]
36. As regards the compelled withdrawal under the third proviso of the pending applications is concerned, once the Legislature intended that the pending applications must be made compliant with the threshold requirement, consequences for not doing so had to be provided. Otherwise, it would have created complete uncertainty and the applicant would have been dealt with in a manifestly arbitrary manner. Providing for the consequence of withdrawal before admission does not have the consequence of preventing the fresh filing, even in regard to the same default, after complying, no doubt, with the requirement of the first or the second proviso, cannot be dubbed as arbitrary. No doubt, there is lack of clarity in this regard in the provision but on an understanding of the law, as expounded, the provision was capable of being understood in the manner done. [Para 365][1156- G-H; 1157-A-B]
37. In regard to the first and the second provisos, they have only prospective operation. The creditors covered by these provisos, are not subjected to any time limit (except, no doubt, the bar under Article 137 of the Limitation Act), in the matter of garnering the requisite support. However, prescribing a time limit in regard to pending applications, cannot be, per se, described as arbitrary, as otherwise, it would be an endless and uncertain procedure. The applications would remain part of the docket and H also become a Damocles Sword overhanging the debtor and the other stakeholders with deleterious consequences also qua the objects of the Code. The period could have been more fair to the petitioners by being longer but that is where one must bear in mind, the limits of jurisdiction. Where would the Court draw the line? It is difficult to hold that within the time limit of 30 days it is impossible to comply with the requirements. [Para 366 and 369][1157-B-D; 1158-C]
p. 919
38. The impugned amendments are upheld, subject to directions issued under Article 142 of the Constitution of India. [Para 372][1159-D] C The State of Gujarat and Others v. Shri Ambica Mills Ltd., Ahmedabad and Others (1974) 4 SCC 656 : [1974] 3 SCR 760; State of West-Bengal v. Anwar Ali AIR 1952 SC 75 : [1952] SCR 284; E.P. Royappa v. State of Tamil Nadu and Another (1974) 4 SCC 3 : [1974] 2 SCR 348; Shayara Bano v. Union of India (2017) 9 SCC 1 : D [2017] 9 SCR 797; Navtej Singh Johar and Others v. Union of India and Others (2018) 10 SCC 1 : [2018] 7 SCR 379; Joseph Shine v. Union of India (2019) 3 SCC 39 : [2018] 11 SCR 765; Justice K.S. Puttuswamy and Others v. Union of India and Others (2017) 10 SCC 1 E : [2017] 10 SCR 569; Hindustan Construction Company Ltd. and Others v. Union of India and Others AIR 2020 SC 122; Shreya Singhal v. Union of India (2015) 5 SCC 1 : [2015] 5 SCR 963; K. Nagaraj and Others v. State of Andhra Pradesh and Another (1985) 1 SCC 523 : [1985] 2 SCR 579; State of Himachal F Pradesh v. Narain Singh (2009) 13 SCC 165 : [2009] [10] SCR 821 – relied on. Pioneer Urban Land and Infrastructure Ltd. and another v. Union of India and Others (2019) 8 SCC 416 : [2019] 10 SCR 381; Chitra Sharma and Others G v. Union of India and Others (2018) 18 SCC 575 : [2018] 12 SCR 1044; Motilal Padampat Sugar Mills Co. Ltd. v. State of U.P. (1979) 2 SCC 409 : [1979] 2 SCR 641; Nagpur Investment Trust and Others v. Vithal H
p. 920
A Rao and Others (1973) 1 SCC 500 : [1973] 3 SCR 39; B.K. Educational Services (P) Ltd. v. Parag Gupta & Associates (2019) 11 SCC 633 : [2018] 12 SCR 794; Swiss Ribbon Pvt. Ltd. & Ors. v. Union of India & Ors. (2019) 4 SCC 17 : [2019] 3 SCR 535; Garikapati Veeraya v. N. Subbiah Choudhry AIR 1957 SC 540 : B [1957] SCR 488; Thirumalai Chemicals Limited v. Union of India and Others (2011) 6 SCC 739 : [2011] 4 SCR 838; Delhi Metro Rail Corporation Ltd. v. Tarun Pal Singh and Others (2018) 14 SCC 161 : [2017] 14 SCR 202; State of Karnataka and Others v. The C Karnataka Pawn Brokers Association and Others (2018) 6 SCC 363 : [2018] 10 SCR 409; Vasant Ganpat Padvave (D) by LRs & Ors. v. Anant Mahadev Sawant (D) Through LRs. & Ors. 2019 (12) SCALE 572; Ameerunnissa Begum and Others v. Mahboob Begum and others [1953] SCR 404; State of Jammu and D Kashmir v. Triloki Nath Khosa and Others (1974) 1 SCC 19 : [1974] 1 SCR 771; Murthy Match Works and others v. Assistant Collector of Central Excise and Another (1974) 4 SCC 428 : [1974] 3 SCR 121; Ajoy Kumar Banerjee and Others v. Union of India and E Others (1984) 3 SCC 127 : [1984] 3 SCR 252; Ashutosh Gupta v. State of Rajasthan and Others (2002) 4 SCC 34 : [2002] 2 SCR 649; Indra Sawhney and Others v. Union of India and Others (1992) 3 Suppl. SCC 217 : [1992] 2 Suppl. SCR 454; Lord Krishna Sugar Mills Limited and Another v. Union of India and Another F [1960] 1 SCR 39; State of Kerala and Another v. N.M. Thomas and Others (1976) 2 SCC 310 : [1976] 1 SCR 906; State of West Bengal and Another v. Rash Behari Sarkar and Another (1993) 1 SCC 479 : [1992] 3 Suppl. SCR 351; State of Kerala v. Aravind Ramakant G Modawdakar and Others (1999) 7 SCC 400; Sansar Chand Atri v. State of Punjab and Another (2002) 4 SCC 154 : [2002] 2 SCR 881; Union of India and others v. Godfrey Philips India Ltd. (1985) 4 SCC 369 : [1985] 3 Suppl. SCR 123; K. Nagaraj and Others v. State of A.P. and Another (1985) 1 SCC 523 : [1985] H
p. 921
2 SCR 579; State of Himachal Pradesh v. Narain Singh A (2009) 13 SCC 165 : [2009] 10 SCR 821; Gujarat Agro Industries Co. Ltd. v. Municipal Corporation of the City of Ahmedabad and Others (1999) 4 SCC 468 : [1999] 2 SCR 895; Howrah Municipal Corporation and Others v. Ganges Rope Co. Ltd. and Others (2004) 1 B SCC 663 : [2003] 6 Suppl. SCR 1212; Arcelormittal India Private Limited v. Satish Kumar Gupta and Others (2019) 2 SCC 1 : [2018] 12 SCR 362; Swiss Ribbons Private Limited and another v. Union of India and Others (2019) 4 SCC 17 : [2019] 3 SCR 535; Karnail Kaur and Others v. State of Punjab and Others (2015) C 3 SCC 206; Committee of Creditors of Essar Steel India Limited Through Authorised Signatory v. Satish Kumar Gupta and Others (2019) SCCONLINE SC 1478; M.S. Shivananda v. Karnataka State Road Transport Corporation and Others (1980) 1 SCC 149 : [1980] D 1 SCR 684 ; Lalji Raja and Sons v. Hansraj Nathuram (1971) 1 SCC 721 : [1971] 3 SCR 815; Kanaya Ram and Others v. Rajender Kumar and Others (1985) 1 SCC 436 ; J.P. Srivastava & Sons (P) Ltd. and Others v. Gwalior Sugar Co. Ltd. and Others (2005) 1 SCC 172 : [2004] 5 Suppl. SCR 648; Anjum Hussain and E Others v. Intellicity Business Park Private Limited and Others (2019) 6 SCC 519 : [2019] 7 SCR 1036; Union of India and Others v. Godfrey Philips India Ltd. (1985) 4 SCC 369 : [1985] 3 Suppl. SCR 123; B.K. Educational Services Private Limited v. Parag Gupta F & Associates (2019) 11 SCC 633 : [2018] 12 SCR 794; Rajahmundry Electric Supply Corporation Ltd. v. A. Nageshwara Rao and Others AIR 1956 SC 213 : [1955] SCR 1066; Chairman, Tamil Nadu Housing Board v. T. N. Ganapathy (1990) 1 SCC 608 : [1990] 1 SCR 272; Pioneer Urban Land and Infrastructure Ltd. G and Another v. Union of India and Others (2019) 8 SCC 416 : [2019] 10 SCR 381; Union of India v. Tarsem Singh (2019) 9 SCC 304; State of Gujarat and Another v. Shree Ambica Mills Ltd. (1974) 4 SCC 656 : [1974] 3 SCR 760; In Re The Special Courts Bill, 1978 (1979) 1 H
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A SCC 380 : [1979] 2 SCR 476; Ajoy Kumar Banerjee and Ors. v. Union of India and Ors. (1984) 3 SCC 127 : [1984] 3 SCR 252; Subramanian Swami v. Director, CBI and Ors. (2014) 8 SCC 682 : [2014] 6 SCR 873; Indira Sawney v. Union of India (1992) 3 Suppl. SCC 217 : [1992] 2 Suppl. SCR 454; State of West Bengal B and Ors. v. Rash Bihari Sarkar and Ors. (1993) 1 SCC 479 : [1992] 3 Suppl. SCR 351; State of Kerala v. Aravind Ramakant Modawdakar and Ors. (1999) 7 SCC 400; Sansar Chand Atri v. State of Punjab and Another (2002) 4 SCC 154 : [2002] 2 SCR 881; His C Holiness Kesavananda Bharti Sripadagalvaru v. State of Kerala and Another (1973) 4 SCC 225 : [1973] 0 Suppl. SCR 1; Innoventive Industries Limited v. ICICI Bank and Another (2018) 1 SCC 407 : [2017] 8 SCR 33; Vasant Ganpat Padave (D) by LRs. and Ors. v. Anant Mahadev Sawant (D) through LRs. and Ors. D (2019) 12 SCALE 579; Shayara Bano v. Union of India and Others (2017) 9 SCC 1 : [2017] 9 SCR 797; S. Sundaram Pillai and others v. R. Pattabiraman and Others (1985) 1 SCC 591 : [1985] 2 SCR 643; Sonia Bhatia v. State of U.P. and Others (1981) 2 SCC 585 : E [1981] 3 SCR 239; Virtual Soft Systems Ltd. v. Commissioner of Income Tax, Delhi-I (2007) 9 SCC 665 : [2007] 2 SCR 289; Hiralal Rattanlal and Ors. v. State of U.P. and another (1973) 1 SCC 216 : [1973] 2 SCR 502; Hitendra Vishnu Thakur and Others v. State of Maharashtra and Others (1994) 4 SCC 602 : [1994] F 1 Suppl. SCR 360; Ambalal Sarabhai Enterprises Ltd. v. Amrit Lal & Co. and Another (2001) 8 SCC 397 : [2001] 2 Suppl. SCR 195; B.K. Educational Services Private Ltd. v. Parag Gupta and Associates (2019) 11 SCC 633 : [2018] 12 SCR 794; Lalji Raja and Sons v. G Hansraj Nathuram (1971) 1 SCC 721 : [1971] 3 SCR 815; Isha Valimohamed v. Haji Gulam Mohamad & Haji Dada Trust (1974) 2 SCC 484 : [1975] 1 SCR 720; Bombay Stock Exchange v. V.S. Kandalgaonkar (2015) 2 SCC 1 : [2014] 14 SCR 409; New India Assurance Co. Ltd. v. Shanti Misra (1975) 2 SCC 840 : [1976] H
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2 SCR 266; Vinod Gurudas Raikar v. National A Insurance Co. Ltd. & Ors. (1991) 4 SCC 333 : [1991] 3 SCR 912; Union of India v. Harnam Singh (1993) 2 SCC 162 : [1993] 1 SCR 862; V. Dhanapal Chettiar v. Yesodai Ammal (1979) 4 SCC 214 : [1980] 1 SCR 334; D. C. Bhatia v. Union of India (1995) 1 SCC 104 : B [1994] 4 Suppl. SCR 539; Mst. Bibi Sayeeda & Ors. v. State of Bihar and Others (1996) 9 SCC 516 : AIR 1996 SC 1936 : [1996] 1 Suppl. SCR 799; M.S. Shivananda v. Karnataka SRTC (1980) 1 SCC 149 : [1980] 1 SCR 684; Rameshwar and Others v. Jot Ram and Another (1976) 1 SCC 194 : [1976] 1 SCR 847; C Bansidhar v. State of Rajasthan (1989) 2 SCC 557 : [1989] 2 SCR 152; Mohinder Kumar and Others v. State of Haryana and Another (1985) 4 SCC 221 : [1985] 2 Suppl. SCR 859; D. C. Bhatia and Others v. Union of India and Another (1995) 1 SCC 104 : [1994] 4 D Suppl. SCR 539; Howrah Municipal Corporation and Others v. Ganges Rope Co. Ltd. and Others (2004) 1 SCC 663 : [2003] 6 Suppl. SCR 1212; Arcelormittal India Private Limited v. Satish Kumar Gupta & Others (2019) 2 SCC 1 : [2018] 12 SCR 362; B.K. Educational Services Private Limited v. Parag Gupta and Associates E (2019) 11 SCC 633 : [2018] 12 SCR 794; M.P. Steel Corporation v. Commissioner of Central Excise (2015) 7 SCC 58; Mardia Chemicals Ltd. and Others v. Union of India and Others (2004) 4 SCC 311 : [2004] 3 SCR 982; P.D. Aggrawal & Others v. State of U.P F and Others (1987) 3 SCC 622 : [1987] 3 SCR 427; Darshan Singh v. Ram Pal Singh and Ors. (1992) 1 Suppl. SCC 191 : [1990] 3 Suppl. SCR 212; K.S. Paripoornan v. State of Kerala (1994) 5 SCC 593 : [1994] 3 Suppl. SCR 405; State Bank’s Staff Union (Madras Circle) v. Union of India and Others AIR 2005 G SC 3446 : (2005) 7 SCC 584 : [2005] 3 Suppl. SCR 200; Delhi Transport Corpn. v. D.T.C. Mazdoor Congress (1991) 1 Suppl. SCC 600 : [1990] 1 Suppl. SCR 142 and Vijay v. State of Maharashtra (2006) 6 SCC 289 : [2006] 4 Suppl. SCR 81 – referred to. H
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A Gopeshur Pal v. Jiban Chandra Chandra and Others AIR 1914 Calcutta 806 – referred to. West v. Gwynne (1910) WLR 976; In Re: Pulborough Parish School Board Election, Bourke v. Nutt (1894) 1 QB 725; Abbott and Minister of Lands (1895) AC 425; B Hamilton Gell v. White (1922) 2 K.B. 422; Odgen Industries Pty. Ltd. v. Haider Doreen Lucas 3 WLR 75/ (1969) (1) All England Reports 121; Director of Public Works and Another v. Ho Po Sang and Others [1961] 3 WLR 39 and L’Office Cherifien Des Phosphates and another And Yamashita-Shinnihon Steamship Co. Ltd. C (1994) 1 All ER 20 – referred to. Case Law Reference [2019] 10 SCR 381 referred to Para 14 [2018] 12 SCR 1044 referred to Para 20 D [1979] 2 SCR 641 referred to Para 20 [1973] 3 SCR 39 referred to Para 20 [2018] 12 SCR 794 referred to Para 23 [2019] 3 SCR 535 referred to Para 23 E [1957] SCR 488 referred to Para 25 [2011] 4 SCR 838 referred to Para 25 [2017] 14 SCR 202 referred to Para 25
F [2018] 10 SCR 409 referred to Para 26 2019 (12) SCALE 572 referred to Para 29 [1953] SCR 404 referred to Para 31 [1974] 1 SCR 771 referred to Para 31 G [1974] 3 SCR 121 referred to Para 31 [1984] 3 SCR 252 referred to Para 31 [2002] 2 SCR 649 referred to Para 31 [1992] 2 Suppl. SCR 454 referred to Para 36 H
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[1960] 1 SCR 39 referred to Para 36 A [1976] 1 SCR 906 referred to Para 36 [1992] 3 Suppl. SCR 351 referred to Para 36 (1999) 7 SCC 400 referred to Para 36 [2002] 2 SCR 881 referred to Para 37 B [1985] 3 Suppl. SCR 123 referred to Para 38 [1985] 2 SCR 579 referred to Para 38 [2009] 10 SCR 821 referred to Para 38 C [1999] 2 SCR 895 referred to Para 39 [2003] 6 Suppl. SCR 1212 referred to Para 39 [2018] 12 SCR 362 referred to Para 39 [2019] 3 SCR 535 referred to Para 39 D (2015) 3 SCC 206 referred to Para 39 [1980] 1 SCR 684 referred to Para 40 [1971] 3 SCR 815 referred to Para 40 (1985) 1 SCC 436 referred to Para 40 E [2004] 5 Suppl. SCR 648 referred to Para 42 [2019] 7 SCR 1036 referred to Para 42 [1974] 3 SCR 760 relied on Para 47 [1952] SCR 284 relied on Para 48 F [1974] 2 SCR 348 relied on Para 49 [2017] 9 SCR 797 relied on Para 49 [2018] 7 SCR 379 relied on Para 50 [2018] 11 SCR 765 relied on Para 50 G [2017] 10 SCR 569 relied on Para 50 AIR 2020 SC 122 relied on Para 50 [2015] 5 SCR 963 relied on Para 51 H
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A [1985] 2 SCR 579 relied on Para 52 [2009] 10 SCR 821 relied on Para 52 [1985] 3 Suppl. SCR 123 referred to Para 54 [2018] 12 SCR 794 referred to Para 134 B [1955] SCR 1066 referred to Para 142 [1990] 1 SCR 272 referred to Para 155 [2019] 10 SCR 381 referred to Para 158 (2019) 9 SCC 304 referred to Para 170 C [1974] 3 SCR 760 referred to Para 175 [1979] 2 SCR 476 referred to Para 176 [1984] 3 SCR 252 referred to Para 177 [2014] 6 SCR 873 referred to Para 178 D [1992] 2 Suppl. SCR 454 referred to Para 183 [1992] 3 Suppl. SCR 351 referred to Para 184 (1999) 7 SCC 400 referred to Para 185 [2002] 2 SCR 881 referred to Para 186 E [1973] 0 Suppl. SCR 1 referred to Para 199 [2017] 8 SCR 33 referred to Para 203 (2019) 12 SCALE 579 referred to Para 216
F [2017] 9 SCR 797 referred to Para 216 [1985] 2 SCR 643 referred to Para 227 [1981] 3 SCR 239 referred to Para 227 [2007] 2 SCR 289 referred to Para 228 G [1973] 2 SCR 502 referred to Para 233 [1994] 1 Suppl. SCR 360 referred to Para 262 [2001] 2 Suppl. SCR 195 referred to Para 262 [2018] 12 SCR 794 referred to Para 262 H [1971] 3 SCR 815 referred to Para 272
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[1975] 1 SCR 720 referred to Para 281 A [2014] 14 SCR 409 referred to Para 287 [1976] 2 SCR 266 referred to Para 288 [1991] 3 SCR 912 referred to Para 291 [1993] 1 SCR 862 referred to Para 291 B [1980] 1 SCR 334 referred to Para 292 [1994] 4 Suppl. SCR 539 referred to Para 293 [1996] 1 Suppl. SCR 799 referred to Para 294 C [1980] 1 SCR 684 referred to Para 296 [1976] 1 SCR 847 referred to Para 297 [1989] 2 SCR 152 referred to Para 298 [1985] 2 Suppl. SCR 859 referred to Para 302 D [1994] 4 Suppl. SCR 539 referred to Para 302 [2003] 6 Suppl. SCR 1212 referred to Para 303 [2018] 12 SCR 362 referred to Para 304 [2018] 12 SCR 794 referred to Para 308 E (2015) 7 SCC 58 referred to Para 308 [2004] 3 SCR 982 referred to Para 312 [1987] 3 SCR 427 referred to Para 317 [1990] 3 Suppl. SCR 212 referred to Para 319 F [1994] 3 Suppl. SCR 405 referred to Para 322 [2005] 3 Suppl. SCR 200 referred to Para 323 [1990] 1 Suppl. SCR 142 referred to Para 326 [2006] 4 Suppl. SCR 81 referred to Para 328 G CIVIL ORIGINAL JURISDICTION: Writ Petition (Civil) No. 26 of 2020. Under Article 32 of The Constitution of India With H
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A Writ Petition (C) No. 53, 28, 47, 27, 73, 328, 210, 191, 164, 163, 166, 173, 182, 176, 177, 257, 341, 267, 333, 337, 388, 402, 390, 393, 783, 579, 806, 714, 642, 805, 19, 33, 75, 165, 850, 374, 229, 228, 209 Of 2020 And Transferred Case (c) No. 228/2020 Ms. Madhavi Diwan, ASG, Tushar Mehta, SG, Sajan Poovayya, B Rana Mukherjee, Neeraj Kishan Kaul, Sr. Advs., Krishnamohan K. Menon, Chaitanyashil Priyadarshi, Ms. Dania Nayyar, Ms. Parul Sachdeva, Akash Vajpayee, Vaibhav Manu Srivastava, Bhanu Pant, Namit Saxena, Piyush Singh, Aditya Parolia, Akshay Srivastava, Nithin Chandran, Rajesh Kumar, Gaurav Goel, Srijan Sinha, Himanshu Chaubey, Ashwarya Sinha, Santosh Kumar, Ayushmaan Vatsyayana, Ms. Hemlata C Rawat, Deepak Anand, Mareesh Pravir Sahay, Ms. Tasheem Ahmadi, Sudhir Kumar Gupta, Manish Gupta, Shikhil Suri, Shiv Kumar Suri, Ms. Madhu Suri, Ms. Shilpa Saini, Ms. Nikita Thapar, Ms. Vinishma Kaul, Ms. Priyanjali Singh, Ms. Rashi Bansal, Dinesh Chandra Pandey, Dhruv Gupta, Harshil Gupta, Arjun Singh Bhati, Annam D. N. Rao, Annam D Venkatesh, Rahul Mishra, Sidharth Joshi, Gopal Singh Chauhan, Saurabh Trivedi, Mahesh Agarwal, Himanshu Satija, Raheel Patel, Ajitesh Soni, Rohan Talwar, Ramchandra Madan, Akash Lamba, E. C. Agrawala, Ms. Shivali, Nilotpal Shyam, Ms. Bharti Tyagi, Rajesh Goyal, Sumit Gehlawat, Tervender Singh, Abhishek Bharadwaj, Pai Amit, Ms. Pankhuri Bhardwaj, Rakesh Taneja, Parshuram A.L., Kumar Vaibhav, Ankit E Agrawal, Rahat Bansal, A.D.N. Rao, Annam Venkatesh, Chandrashekhar A. Chakalabbi, Shivanshu Kumar, Shiv Kumar Pandey, Awanish Kumar, Anshul Rai for M/s Dharmaprabhas Law Associates, Mayank Pandey, Ms. Misha Rohatgi Mohta, Johnson Subba, Ms. Purti Marwaha Gupta, Dr. Anindita Pujari, Arvind Kumar Gupta, Ms. Henna F George, Ms. Twisha Issar, Ms. Deval Singh, Om Narayan, Pallav Mongia, Kanu Agarwal, Ms. Sunita Sharma, Rajeev Ranjan, Ms. Sansriti Pathak, Arvind Kumar Sharma, Ms. Charu Ambwani, Hirendranath, Santanam Swaminadhan, Ms. Prakruti Golechha, Ms. Abhilasha Shrawat, Mrs. Aarthi Rajan, Amar Gupta, Divyam Agarwal, Daksh Ahluwalia, Ms. Pallavi Kumar, Adhiraj Gupta, Pratibhanu Singh, Shikhar Maniar, G Ms. Raksha Aggarwal, Keshav Mohan, R.K. Awasthi, Prashant Kumar, Piyush Vats, Ms. Ritu Arora, Santosh Kumar - I, Rajesh P., Karan Rajpurohit, Krishna Dev Jagarlamudi, Vikram Hegde, Rahul Kumar, Advs. for the appearing parties. Respondent-in-person H
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Judgment
The Judgment of the Court was delivered by A K. M. JOSEPH, J.
11. The petitioners have approached this Court under Article 32 of the Constitution of India. They call in question Sections 3, 4 and 10 of the Insolvency and Bankruptcy Code (Amendment) Act 2020 (hereinafter referred to as ‘the impugned amendments’, for short). Section 3 of the B impugned amendment, amends Section 7(1) of the Insolvency and Bankruptcy Code, 2016 (hereinafter referred to as ‘the Code’, for short). Section 4 of the impugned amendment, incorporates an additional Explanation in Section 11 of the Code. Section 10 of the impugned amendment inserts Section 32A in the Code. C
22. Section 7(1) of the Code before the amendment read as follows: “7. Initiation of corporate insolvency resolution process by financial creditor: (1) A financial creditor either by itself or jointly with other financial D creditors, or any other person on behalf of the financial creditor, as may be notified by the Central Government, may file an application for initiating corporate insolvency resolution process against a corporate debtor before the Adjudicating Authority when a default has occurred.” E Explanation- For the purposes of this sub section, a default includes a default in respect of a financial debt owed not only to the applicant financial creditor but to any other financial creditor of the corporate debtor. The amendment to the same by Section 3 of the impugned F amendment incorporates 3 provisos to Section 7(1), which reads as under: “Provided that for the financial creditors, referred to in clauses (a) and (b) of sub-section (6A) of section 21, an application for initiating corporate insolvency resolution process against the corporate debtor shall be filed jointly by not less than one hundred of such creditors in the same class or not less than ten per cent. G of the total number of such creditors in the same class, whichever is less: Provided further that for financial creditors who are allottees under a real estate project, an application for initiating corporate H
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A insolvency resolution process against the corporate debtor shall be filed jointly by not less than one hundred of such allottees under the same real estate project or not less than ten per cent. of the total number of such allottees under the same real estate project, whichever is less: B Provided also that where an application for initiating the corporate insolvency resolution process against a corporate debtor has been filed by a financial creditor referred to in the first and second provisos and has not been admitted by the Adjudicating Authority before the commencement of the Insolvency and Bankruptcy Code (Amendment) Act, 2020, such application shall be modified to C comply with the requirements of the first or second proviso within thirty days of the commencement of the said Act, failing which the application shall be deemed to be withdrawn before its admission.”
33. Section 11 before the amendment read as follows: D “11. Persons not entitled to make application. - The following persons shall not be entitled to make an application to initiate corporate insolvency resolution process under this Chapter, namely:-
E (a) a corporate debtor undergoing a corporate insolvency resolution process; or (b) a corporate debtor having completed corporate insolvency resolution process twelve months preceding the date of making of the application; or F (c) a corporate debtor or a financial creditor who has violated any of the terms of resolution plan which was approved twelve months before the date of making of an application under this Chapter; or (d) a corporate debtor in respect of whom a liquidation order has been made. Explanation 1 [I]. - For the purposes of this section, a G corporate debtor includes a corporate applicant in respect of such corporate debtor.” The explanation which was inserted through the impugned amendment reads as follows:
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[K. M. JOSEPH, J.]
“Explanation II.- For the purposes of this section, it is hereby A clarified that nothing in this section shall prevent a corporate debtor referred to in clauses (a) to (d) from initiating corporate insolvency resolution process against another corporate debtor.”
44. Section 32A inserted through the impugned amendment reads as follows: B “32A. (1) Notwithstanding anything to the contrary contained in this Code or any other law for the time being in force, the liability of a corporate debtor for an offence committed prior to the commencement of the corporate insolvency resolution process shall cease, and the corporate debtor shall not be prosecuted for such an offence from the date the resolution plan has been approved by the Adjudicating Authority under section 31, if the resolution plan results in the change in the management or control of the corporate debtor to a person who was not— (a) a promoter or in the management or control of the corporate debtor or a related party of such a person; or (b) a person with regard to whom the relevant investigating authority has, on the basis of material in its possession, reason to believe that he had abetted or conspired for the commission of the offence, and has submitted or filed a report or a complaint to the relevant statutory authority or Court: Provided that if a prosecution had been instituted during the corporate insolvency resolution process against such corporate debtor, it shall stand discharged from the date of approval of the resolution plan subject to requirements of this sub-section having been fulfilled: Provided further that every person who was a “designated partner” as defined in clause (j) of section 2 of the Limited Liability Partnership Act, 2008, or an “officer who is in default”, as defined in clause (60) of section 2 of the Companies Act, 2013, or was in any manner incharge of, or responsible to the corporate debtor for the conduct of its business or associated with the corporate debtor in any manner and who was directly or indirectly involved in the commission of such offence as per the report submitted or complaint filed by the investigating authority, shall continue to be liable to be prosecuted and punished for such an offence committed H
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A by the corporate debtor notwithstanding that the corporate debtor’s liability has ceased under this sub-section. (2) No action shall be taken against the property of the corporate debtor in relation to an offence committed prior to the commencement of the corporate insolvency resolution process of B the corporate debtor, where such property is covered under a resolution plan approved by the Adjudicating Authority under section 31, which results in the change in control of the corporate debtor to a person, or sale of liquidation assets under the provisions of Chapter III of Part II of this Code to a person, who was not— C (i) a promoter or in the management or control of the corporate debtor or a related party of such a person; or (ii) a person with regard to whom the relevant investigating authority has, on the basis of material in its possession reason to believe that he had abetted or conspired for the commission of the offence, and has submitted or filed a report or a complaint to the relevant statutory authority or Court. Explanation.—For the purposes of this sub-section, it is hereby clarified that,— (i) an action against the property of the corporate debtor in relation to an offence shall include the attachment, seizure, retention or confiscation of such property under such law as may be applicable to the corporate debtor; (ii) nothing in this sub-section shall be construed to bar an action against the property of any person, other than the corporate debtor or a person who has acquired such property through corporate insolvency resolution process or liquidation process under this Code and fulfils the requirements specified in this section, against whom such an action may be taken under such law as may be applicable. G (3) Subject to the provisions contained in sub-sections (1) and (2), and notwithstanding the immunity given in this section, the corporate debtor and any person who may be required to provide assistance under such law as may be applicable to such corporate debtor or person, shall extend all assistance and co-operation to any authority investigating an offence H
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[K. M. JOSEPH, J.]
committed prior to the commencement of the corporate A insolvency resolution process.” WHO ARE THE PETITIONERS?
55. More than the lion’s share of the petitioners are allottees under real estate projects and hereinafter referred to as allotees. They have trained the constitutional gun at the impugned provisos. B
66. Under the second proviso, a new threshold has been declared for an allottee to move an application under Section 7 for triggering the insolvency resolution process under the Code. The threshold is the requirement that there should be at least 100 allottees to support the application or 10 per cent of the total allottees whichever is less. Moreover, C they should belong to the same project. Almost all (except in two petitions), the petitioners also had under the erstwhile regime which permitted even a single allottee to move an application under Section 7 filed petitions singly or with less than the number required under the proviso and they are visited with the provisions of the third proviso as per which such of those applications under section 7 which had not been admitted would stand withdrawn within 30 days, if the newly declared threshold of 100 allottees or 10 per cent of the allottee whichever is lower was not garnered by the applicant/applicants.
77. In some of the petitions, the petitioners are money lenders, that is, they have stepped in to provide finance for the real estate projects. They are also visited with the requirement which is imposed upon them under the first impugned proviso which is on similar lines as those comprised in the second proviso.
88. Then, there is, no doubt, Section 32A, which stands impugned by the creditors and allottees. THE CODE
99. The Code was enacted in the year 2016. It is one of the most important economic measures contemplated by the State to prevent insolvency, to provide last mile funding to revive ailing businesses, maximise value of assets of the entrepreneurs, balance the interest of all the stakeholders and even to alter the order of priority of payment of Government dues. The Code is divided into five parts. The first part is shortest portion. Part II deals with what we are concerned with in these cases and it purports to deal with insolvency resolution and liquidation H
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A for corporate persons. ‘Corporate person’ has been defined in Section 3(7) as follows: “3(7). “corporate person” means a company as defined in clause (20) of section 2 of the Companies Act, 2013, a limited liability partnership, as defined in clause (n) of sub-section (1) of section B 2 of the Limited Liability Partnership Act, 2008, or any other person incorporated with limited liability under any law for the time being in force but shall not include any financial service provider.”
1010. Section 3(8) defines ‘corporate debtor’ which provides that a corporate debtor means a person who owes a debt to any person.
1111. We may notice that Chapter II of Part II which consists of Sections 6 to 32 deal with the corporate insolvency resolution process. Chapter III deals with ordinary liquidation process in regard to corporate person. Chapter IV of Part II consisting of four sections deal with fast- track insolvency resolution process. Chapter V which consists of Section D 59 only deals with voluntary liquidation of corporate person. Chapter VI deals with miscellaneous aspects. Chapter VII Part II deals with Penalties.
1212. Part III deals with insolvency resolution and bankruptcy code for individuals and partnership firms. It may be noticed at once that partnership firms with limited liability as defined in the Limited Liability E Partnership Act, 2008 fall within the definition of the word ‘Corporate person’ and insolvency and liquidation process in regard to the same is found in Part II of the Code. It is in regard to Insolvency resolution and bankruptcy for the other partnership firms which one has to look to the provisions of Part III. Part III begins with Section 78 and ends with Section 187. The further provisions relate to the regulation of insolvency professional agencies and information utilities. They are all key instrumentalities for the effective working of the Code. Equally, it may be apposite to bear in mind Section 238A. It reads as follows: “238A. Limitation - The provisions of the Limitation Act, 1963 (36 of 1963) shall, as far as may be, apply to the proceedings or appeals before the Adjudicating Authority, the National Company Law Appellate Tribunal, the Debt Recovery Tribunal or the Debt Recovery Appellate Tribunal, as the case may be.”
1313. Shri Krishna Mohan Menon, learned counsel for the petitioners (allottees) in some of the petitions has addressed the following submissions before us:
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The impugned amendment clearly falls foul of the mandate A of Articles 14, 19 (1)(g), 21 and 300A of the Constitution. The amendment by virtue of section 3 of the Amendment Act introducing the second proviso in Section 7(1) of the Code makes a hostile discrimination between financial creditors, the category, to which the petitioners belong and the other financial creditors. B Secondly, it is contended that the amendment imposing a threshold restriction is afflicted with the vice of palpable and hostile discrimination qua operational creditors. The purported protection sought to be accorded to the real estate developer, cannot form the premise for inflicting violation of constitutionally protected freedom under Article 19(1)(g) just as much as it also constitutes an insupportable invasion of the grand mandate of equality. Next, he would submit that there are inherent leakages in the impugned provisions which would make it unworkable. Thereafter, learned counsel would submit that the impugned amendment is also bad in law for the reason that it is manifestly arbitrary. Yet another argument addressed by Shri Krishna Mohan Menon, learned counsel is that the amendment has the legally pernicious effect of creating a class within a class, a result, which is frowned upon by the law.
1414. Learned counsel would expatiate and submit that under the Code, the law provides for a period of 14 days for the Adjudicating E Authority to decide whether an application under Section 7 should be admitted. Section 12 declares an inflexible time limit for the insolvency resolution process to be terminated. The whole purport of the provisions of the Code and the manner in which it is structured is geared to achieve a laudable object. The Code aims at improving the ranking of India in the F matter of ease of doing business. It is an economic measure which is intended to transform India into a country which would attract capital and investment. The Code has indeed resulted in a transformation of attitudes of the key players, in that it has come to be perceived as a law not merely on paper but one with teeth to it. He would point out that this Court in its decision in the Pioneer’s Case Pioneer Urban Land and G Infrastructure Ltd. and another v. Union of India and others1 has elaborately dealt with the apprehension that allowing the home buyers like the petitioners who finance the builder’s activities to invoke the CIRP process will lead to misuse of the provisions and allayed the unfounded 1 (2019) 8 SCC 416 H
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A fears. Yet the legislature has ventured to place unjustifiable clogs on the right of one category of financial creditors alone which is impermissible. The spectre of a speculative investor running riot and playing havoc has been adequately addressed by this Court. There is no worthwhile data of misuse by home buyers. He points out the judgments passed by NCLAT where the financial creditors, who are home buyers, approach the Tribunal B and the cases reflect gross and inordinate delay of nearly five years justifying the approach made by the home buyers under the Code. In other words, there were genuine cases where the debtor had become insolvent and hence the home buyer had complete justification in knocking at the doors of the competent Tribunal under the Code. He took us through the reports of the Parliamentary Committee and complained that no reasons are discernible to justify the amendments. Equally, he commended for our acceptance the observations in the dissent notes and contended that they fortify the submissions.
1515. In regard to the comparison sought to be made, with similar requirements in Sections 397, 398 read with 399 of the Companies Act, 1956 and Section 241 and 244 of the Companies Act, 2013, he would submit that there are significant distinctions.
1616. Firstly, he would submit that in the case of shareholders approaching the Tribunal under the Companies Act, they would be armed with the details regarding shareholding which are always available having regard to the scheme of the Companies Act. On the other hand, he points that in regard to home buyers who have sunk their hard-earned money in real estate projects there is no system under which they could obtain data or information regarding the persons similarly circumstanced and whose co-operation and support is necessary under the impugned amendment to activise the Code.
1717. Secondly, he would submit that having regard to the explanation in Section 244 of the companies Act, 2013, it brings about clarity in regard to the situation where there is a joint holding. The absence of any such similar provision in Section 7 of the Code is emphasised in an attempt at persuading the court to overturn the law. He would further point out the practical difficulties in the working of the amended law. He submits that the date of default of various home buyers may be different. Therefore, to forge a common complaint impelling a group of home buyers to come together is impracticable and not workable’. He would submit that legislature cannot be permitted to take away through one hand what it has given by the other.
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[K. M. JOSEPH, J.]
1818. Learned Counsel would further contended that as far as the A third proviso is concerned while accepting the position that the 14 days period for disposal of the matter under the Code has been understood to be directory and not mandatory, at the same time, it cannot be the law that a case should grace the docket endlessly and never witness an end and the retrospectivity which it reflects clearly renders it arbitrary. B
1919. Shri Shikhil Suri, learned Counsel for the petitioner in Writ Petition (Civil) No. 191 of 2020 would submit that the impugned amendment is arbitrary being in the teeth of the principles laid down in Pioneer (supra). The object of the law would stand defeated he contends. The Ordinance would not only deprive the petitioner of her right under Section 7 but it also violates Article 14 of the Constitution of India. The C threshold limit is unreasonable and arbitrary. It is excessive and irrational. It is not in public interest. He also points out that there exists adequate shield against a single allottee misusing the Code. The threshold is thrust upon only on the home buyer and is not applicable across the board for other financial creditors. It is discriminatory. There is no rationale. It D treats equals unequally and unequals as equals. There is no intelligible differentia. The law does not permit classes among financial creditors. There is breach of the guarantee of equal protection of law. The threshold in Section 4, namely, default of Rupees One crore is the one which applies to all creditors. It is inexplicable as to how only in regard to home buyers, a different threshold should be insisted upon. The remedy of the home buyer is defeated. The Ordinance was brought in haste without proper discussion and debate. The amendment takes away the vested right of the home buyers. There is no intelligible differentia bearing a nexus with the object and purpose of the Act. He also emphasised the practical difficulties involved in arranging the necessary numerical strength under the impugned provision.
2020. Shri Piyush Singh, learned counsel for the petitioners would submit that once the right is conferred to make an application, then it cannot come conditioned with threshold limit as is provided in the impugned provisos. Secondly, he would point out that there is manifest arbitrariness. G That apart, he would also contend that there is hostile discrimination qua other corporate debtor. The builder who is a corporate debtor, in other words, is given a more favourable treatment than other corporate debtors which is afflicted with the vice of hostile discrimination. He also complained of both under and over inclusiveness in the impugned H
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A provisions. Next, learned counsel submits that the very object is discriminatory. Drawing our attention to both Chitra Sharma and others v. Union of India and others2 and Pioneer (supra), he would highlight that having regard to the background in which the rights of the home buyer was recognised as being one of that of a financial creditor, the amendment is clearly impermissible. He would also submit that having B regard to the stand taken by the Government in the case before this Court, in particular, Pioneer (supra), the principles of promissory estoppel will apply and prevent enactment of the impugned provisions. He would expatiate and submit that the conditions which have been imposed render the remedy illusory. He drew our attention to Order 1 Rule 8 of the C Code of Civil Procedure and also took us to the explanation therein. He would submit that the proviso is not on similar lines as Order 1 Rule 8. This is for the reason that under the procedure under Order 1 Rule 8, the numerical stipulation in the impugned Provisos is not insisted upon. Once persons having same interest institute a civil suit, after following the procedure all persons having the same interest become involved and what is more would be bound by the decision. Section 12 of the Consumer Protection Act which also captures and embodies the principle of Order 1 Rule 8 ensures the protection of class interest and also protect class interest without putting stiff barriers as threshold limits as done by the impugned amendment. He pointed out that the real estate owners do not take any loan from financial institutions. They raise capital exclusively from the allottees virtually. In such circumstances, to put this threshold limit is clearly impermissible. He drew our attention to the judgment of the Court in Motilal Padampat Sugar Mills Co. Ltd. v. State of U.P3., to buttress his submission regarding availability of principles of promissory estoppel. There is manifest arbitrariness in the provisions. He complained that the RERA has not been constituted in all the States. He also made an attempt at pointing out the perception that the amendment is to confer an unmerited advantage on the builder. This he purported to do by drawing our attention to an article in a newspaper. He essentially projected this argument as a thinly disguised argument of malice against the law giver. G He also sought to draw support from the judgment of this Court in Nagpur Investment Trust and others v. Vithal Rao and others4. He reiterated the principle of hostile discrimination. He drew our attention 2 (2018) 18 SCC 575 3 (1979) 2 SCC 409 4 H (1973) 1 SCC 500
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[K. M. JOSEPH, J.]
to the definition of the word ‘allottee’ in RERA. It is here that he complained of the provision being under inclusive and over inclusive. The legislature, he points out should have waited and at best could have acted if there is impeachable and empirical evidence warranting such a drastic incursion into the vested right of the home buyer. He also highlights that in law there can only be one default. A home buyer who before the amendment could by himself set the law into motion, is now left at the mercy of similarly circumstanced persons which itself is rendered impossible by the absence of an information generating mechanism which is accessible. He would also point out that the dates of the agreements of different home buyers would be different. Depending on the dates of the agreements being different, it is incontrovertible, he points out that the date of default would be different. He would pose the question as to how in such circumstances the law could insist upon a home buyer assembling together other homebuyers and that too one hundred in number or one-tenth of the total number of allottees. Allottees are spread all over the world. It is inconceivable as to how the provision can be worked in a reasonable and fair manner.
2121. Shri Rahul Rathore, learned Counsel for the petitioners in some of the writ petition would apart adopting the contentions, contend that insolvency has been predicated project wise. He would submit that under the impugned amendment, the allottees are to be culled out from among a particular project. In other words, the requirement under the provision is that the applicants must be 100 allottees or one-tenth of the allottees of a particular real estate project. He would point out that a corporate body may be having different projects. If that be so, there is no rationale in insisting that the said corporate body has become insolvent, qua the particular project in which the applicants are interested. Insolvency, in other words, would be a financial malaise, which afflicts the corporate body as a whole, qua all its projects. If the allottees can be drawn from other projects undertaken by the company then maybe it may have rendered the provisions more reasonable appears to be the argument of the petitioner. But this is not so. The provisions are irrational. The home buyer is a person who invests his life time savings. He is in a weak position already. Instead of conferring protection on him, the homebuyer is being saddled with more oppressive and burdensome conditions. There is no platform for the exchange and availability of information with details regarding the allottees. The Limitation Act applies as held by this Court. He would also appear to rely on the theory of a single default. The H
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A conditions are impossible to fulfil. The home buyer is being shut out at the very threshold.
2222. Shri Dinesh C. Pandey, learned Counsel would also contend that Section 6 of the General Clauses Act would protect all the pending applications.
2323. Shri Dhruv Gupta, learned Counsel appearing in W.P. (C) No.177 of 2020 complained against retrospectivity spelt out by the impugned provisions. The right which was a vested right was substantive in nature. The law could only be prospective. He draws our attention to the judgment of this Court in B.K. Educational Services (P) Ltd. v. C Parag Gupta & Associates5. He also lays store by the principles laid down by this Court in Swiss Ribbon Pvt. Ltd. & Ors. v. Union of India & Ors.6 and also in The Pioneer (supra).
2424. Ms. Purti Marwaha Gupta, learned counsel in W.P.(C) No. 75 of 2020 adopted the contentions of Shri Krishna Mohan Menon. D Learned counsel would make submissions qua section 32A which is yet another provision which is challenged. She drew our attention to Section 2(u) and 20 of the Prevention of Money Laundering Act, 2002. She would submit but for Section 32A, the properties which are acquired could be attached but that is pre-empted by Section 32A. The civil remedies open are taken away in regard to acts of crime. Section 14 of the Act which deals with Moratorium is referred to in this regard.
2525. Shri A.D.N. Rao, learned Counsel would submit that a substantive right cannot be taken away by a procedural requirement. The home buyers have been conferred the substantive right to invoke the code by moving an application under Section 7. This right cannot be taken away by providing for a procedure and what is more which is impossible to attain. He drew our attention to the decision of this Court in Garikapati Veeraya v. N. Subbiah Choudhry7. He would submit that the law as on the date of initiation should prevail and it cannot be taken away by the amendment which is made subsequently. Apparently, G the learned counsel is making his submission qua the 3rd proviso inserted in Section 7(1) of the Code. He seeks to drawn support from judgment of this court in Thirumalai Chemicals Limited v. Union of India and
5 (2019) 11 SCC 633 6 (2019) 4 SCC 17 7 H AIR 1957 SC 540 / 1957 SCR 488
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others8. He also contends that a proviso cannot override the main provision. In this regard, he relied upon the judgment of this court in Delhi Metro Rail Corporation Ltd. v. Tarun Pal Singh and others9. He would in fact point out with reference to facts that the orders were reserved in the application under Section 7 in November, 2019. The proviso came to be inserted on 28th December 2019. Resultantly, when the order came to be pronounced regarding admission of the application under Section 7, the authorities stood overtaken by the amendment. All of this is for no fault of the litigant who at the time when the application was moved was governed by a different regime which did not contain the harsh and arbitrary provisions. He would also point out practical difficulty in finding out other allottees. C
2626. Smt. Tasleem Ahmadi, learned Counsel would submit that an amendment as impugned in this case has the effect of setting at nought the directions and decision of this court. She would complain that an amendment has been engrafted without removing the premise on which Pioneer was decided. She drew our attention to the judgment of this D Court in State of Karnataka and others v. The Karnataka Pawn Brokers Association and others10 (paragraphs-16, 20, 23 and 24).
2727. Shri Aditya Parolia, learned Counsel would submit that while the legislature has the freedom to experiment the power does not exist beyond certain limits. It cannot create provisions which are arbitrary. E Unequals are treated equally. The objections of the home buyers were not discussed. The draft was not discussed. In this regard he points to the dissent of Shri TK Rangarajan. There is no intelligible differentia to distinguish the home buyers from the other creditors. The class action under the Consumer Protection Act is denied under the code. Even a decree holder under the aegis of RERA is denied relief. He also points out the lack of information required to properly work the statute. Allottees are spread across the globe. The real estate investor siphons off major amounts. The default is in rem.
2828. Shri Pallav Mongia, learned Counsel would point out that home buyers would continue to be financial creditors. The proviso cannot take away the said right. Unequals are being made equal. Information regarding allottees is not available. He refers to the report of the Parliamentary 8 (2011) 6 SCC 739 9 (2018) 14 SCC 161 10 (2018) 6 SCC 363 H
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A Committee. He also complains about the absence of undisputed documents. As regards information relating to allottees he would make the point that the Code itself does not provide for a mechanism for a home buyer to glean information. He is being called upon to collect information with reference to another enactment namely RERA. This should be treated as fatal to the constitutionality of the impugned B amendments. He would further submit that the provision is bad for it being vague. The argument of vagueness is addressed with reference to the following:
1. The date of default.
C 2. The court fee payable when there is more than one applicant.
3. The threshold amount of default stipulated under section 4 namely Rs. One crore at present.
4. He also would complain against the retrospectivity involved.
2929. Shri Rana Mukherjee, learned Senior Counsel appears in writ petition where first proviso is called in question, he represents the cause of money lenders. He drew our attention to paragraph-43 of the Pioneer (supra). He pointed out that the requirement that the applicants must be of the same class and there must be 100 of them rendered the provisions unachievable. He drew our attention to Sections 244 and 245 of the E Companies Act, 2013. He pointed out that the threshold under the said Act could be relaxed whereas under the code the law giver has inflicted the requirement as an inflexible mandate. He also complained of there being no information qua the requirement of 10 percent. He drew our attention to Rule 8A. He would submit that actually Parliament had in mind the home buyer. The insertion of the 1st proviso betrays a mistaken roping in of the category of creditors represented by his clients. He sought to draw considerable support from the judgment of this Court in Vasant Ganpat Padvave (D) by LRs & Ors. v. Anant Mahadev Sawant (D) Through LRs. & Ors.11 of his compilation. He commended for our acceptance the principle that the law must be considered having regard to consequences it produces. He requested that the court may bear in mind the requirement that the law in its application must produce fair results.
11 H 2019 (12) SCALE 572
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3030. Per contra, the stand of the Union, as projected through Smt. A Madhavi Divan, learned ASG, and through the Written Submissions submitted, can be summed-up as follows: The impugned amendments are perfectly valid. The amendments are part of an economic measure. There was a Report of an Expert Committee. The Expert Committee B recommended imposing a threshold amendment in respect of certain classes of financial creditors. It is modelled on the Companies Act. There are other statutory examples of such threshold requirements. The impugned provisions conform to the principle of reasonable classification. Intelligible differentia distinguishes the allottees and debenture holders and security holders covered by the provisos from the other financial creditors. The amendments were necessitated from experience. There is a rational nexus between the differentia and the objects. The amendment, as far as the impugned provisos are concerned, are essentially an extension of Sections 21(6A) and Section 25A of the Code, under which, the debenture holders and security holders, on the one hand, and allottees, on the other, are treated differently. The provisions are not manifestly arbitrary, they are, indeed, workable. Having regard to the Explanation in Section 7(1), the default qua any financial creditor, even if, he is not an applicant, can be made use of by other allottees or debenture holders and security holders.
3131. It is pointed out further that the constitutional validity of Sections 21(6A) and 25A of the Code, was upheld by this Court in Pioneer (supra). In this regard, attention is also drawn to the observations of this Court in paragraph-43 of Pioneer (supra). On the strength of the said observations, it is contended that this court has recognized that allottees/ home buyers are not a homogenous group. This Court also recognized, it is pointed out, that the deposit-holders and security-holders form a sub- class/class of financial creditors, who are treated a little differently, on account of the sheer number of such creditors coupled with the heterogeneity within the group that may cause difficulties in the decision- making process. The provisions were introduced for ironing out the logistical/procedural complications that may arise on account of the peculiar nature of these groups. The provisions impugned in the present litigation merely supplement Sections 21(6A) and Section 25A of the H
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A Code. The rationale in the said judgment should be applied in this case also. It is further pointed out that the challenge in Pioneer (supra) was mounted by the developers and the home buyers accepted the provisions, as being necessary to iron out the creases. The ASG drew support from judgments of this Court which are as follows: B i. Ameerunnissa Begum and others v. Mahboob Begum and others 12; ii. State of Jammu and Kashmir v. Triloki Nath Khosa and others 13; iii. Murthy Match Works and others v. Assistant Collector C of Central Excise and another14; iv. Ajoy Kumar Banerjee and others v. Union of India and others 15; v. Ashutosh Gupta v. State of Rajasthan and others16;
3232. It is contended that there is a rational nexus with the objects of the Code insofar as the impugned provisos are concerned and the classification is permissible under Article 14 of the Constitution. She drew our attention to the Statements of Objects and Reasons appended to the amendment Bill to the Code, 2019, which introduced sub-Section 3A in Section 25A. It reads as follows: E “[…]
2. The Preamble to the Code lays down the objects of the Code to include “the insolvency resolution” in a time bound manner for maximisation of value of assets in order to balance the interests of all the stakeholders. Concerns have been raised that in some cases extensive litigation is causing undue delays, which may hamper the value maximisation. There is a need to ensure that all creditors are treated fairly, without unduly burdening the Adjudicating Authority whose role is to ensure that the resolution plan complies with the provisions of the Code. Various stakeholders have suggested that if the creditors were treated on an equal 12 (1953) SCR 404 13 (1974) 1 SCC 19 14 (1974) 4 SCC 428 15 (1984) 3 SCC 127 16 H (2002) 4 SCC 34
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footing, when they have different preinsolvency entitlements, it A would adversely impact the cost and availability of credit. Further, views have also been obtained so as to bring clarity on the voting pattern of financial creditors represented by the authorised representative. […] B (d) to insert sub-section (3A) in section 25A of the Code to provide that an authorised representative under sub-section (6A) of section 21 will cast the vote for all financial creditors he represents in accordance with the decision taken by a vote of more than fifty per cent. of the voting share of the financial creditors he represents, who have cast their vote, in order to facilitate decision making in the committee of creditors, especially when financial creditors are large and heterogeneous group;”
3333. Thus, the Statement of Objects and Reasons recognizes the heterogeneity within the class and the need to streamline, smoothen and facilitate the process so as to avoid unnecessary delay. There is also a concern about extensive litigation causing delays and hampering the maximization of value, it is pointed out. Multiple applications by members of this large class of financial creditors, in such a class, would also add to the burden of the Adjudicating Authority, choke-up its docket and delay the process. This would be counterproductive to the object of the E Code which seeks to ensure time-bound Resolution Process for the maximization of total value of assets. Reference is made to the Report of the Insolvency Law Committee, dated February, 2020, which recommended the insertion of a minimum number of financial creditors in a class. It reads as follows: F “ii. Application for Initiation of CIRP by Class of Creditors- As CIRP can be initiated by a single financial creditor, such as a homebuyer or a deposit holder, that belongs to a certain class of creditors following a minor dispute, it might exert undue pressure on the corporate debtor and might jeopardize the interests of the G other creditors in the class who are not in favor of such initiation. It is being recommended that there should be a requirement for a minimum threshold number of certain financial creditors in a class for initiation of the CIRP. So, an amendment to section 7(1) to provide that for a class of creditors falling within clause (a) or (b) H
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A of Section 21(6A), the CIRP may only be initiated by at least a hundred such creditors or 10 percent of the total number of such creditors in a class.
4. APPLICATION FOR INITIATION OF CIRP BY CLASSES OF CREDITORS B 4.1. Section 7 of the Code allows a financial creditor to initiate a CIRP against a corporate debtor upon the occurrence of default, either by itself, or jointly with other financial creditors. 4.2. It was brought to the Committee that for classes of financial creditors referred to in sub-clauses (a) and (b) of Section 21(6A) C of the Code - such as deposit holders, bondholders and homebuyers - there was a concern that the CIRP can be initiated by only one or few such financial creditors following minor disputes. This may exert undue pressure on the corporate debtor, and has the potential to jeopardise the interests of the other creditors in the class who D are not in favour of the initiation of CIRP. This may also impose additional burden upon the Adjudicating Authority to hear objections to heavily disputed applications. The Committee noted that this may be antithetical to the value of a time-bound resolution process, as the already over-burdened Adjudicating Authorities are unable to list and admit all such cases filed before them. E 4.3. The Committee discussed that classes of creditors such as homebuyers and deposit holders have every right as financial creditors to initiate CIRP against a corporate debtor that has defaulted in the repayment of its dues. However, it was acknowledged that initiation of CIRP by classes of similarly situated creditors should be done in a manner that represents their collective interests. It was felt that a CIRP should be initiated only where there is enough number of such creditors in a class forming a critical mass that indicates that there is in fact largescale agreement that the issues against a corporate entity need to be resolved by way of a CIRP under the Code. This may well be a more streamlined way of allowing a well-defined class of creditors to agree upon initiating what is a collective process of resolution under the Code. 4.4. In this regard, and specific to the interests of homebuyers, the Committee also noted that in cases where a homebuyer cannot H
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file an application for initiation of CIRP for having failed to reach A the aforesaid critical mass, she would still have access to alternative fora under the RERA and under consumer protection laws. For instance, as recognised by the Supreme Court in the case of Pioneer Urban Land and Infrastructure Limited and Ors. v Union of India, the remedies under the Code and under the RERA B operate in completely different spheres. The Code deals with proceedings in rem, under which homebuyers may want the corporate debtor’s management to be removed and replaced so that the corporate debtor can be rehabilitated. On the other hand, the RERA protects the interests of the individual investor in real estate projects by ensuring that homebuyers are not left in the lurch, and get either compensation or delivery of their homes. Thus, if there is a failure to reach a critical mass for initiation of CIRP, it may indicate that in such cases another remedy may be more suitable. 4.5. Accordingly, it was agreed that there should be a requirement to have the support of a threshold number of financial creditors in a class for initiation of CIRP. 4.6. In this regard, the Committee considered if a cue may be taken from the requirements for filing of class actions suits as provided under the Companies Act, 2013. Class action suits may inter alia be filed by a hundred members or depositors or by at least 5 per cent of the total number of members or depositors of the company.14 Similar to this requirement, and keeping with the extant situation of classes of creditors under the Code, it was suggested that Section 7 of the Code could be amended in respect of such classes of creditors to allow initiation by a collective number of at least a hundred such creditors or at least ten percent of the total number of such creditors forming part of the same class. Thus, the Committee agreed that Section 7(1) of the Code may be amended to provide that for classes of creditors falling within clauses (a) and (b) of Section 21(6A), the CIRP may only be initiated by at least a hundred such creditors, or ten percent of the total number of such creditors in a class. 4.7. The Committee also noted that the collective number of homebuyers that form the threshold amount for initiation of a CIRP, should belong to the same real estate project. This would allow H
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A homebuyers that have commonality of interests, i.e. allottees under the same real estate project, to come together to take action for initiating CIRP against a real estate developer. Thus, in such cases, the CIRP may be initiated by at least a hundred such allottees or ten percent of the total number of such allottees belonging to the same real estate project. B 4.8. However, to ensure that there is no prejudice to the interests of any such creditor in a class whose application has already been filed but not admitted by the Adjudicating Authority, the Committee agreed that a certain grace period may be provided within which such creditor in a class may modify and file its application in C accordance with the above-stated threshold requirements. However, if the creditor is unable to fulfil the threshold requirements to file such modified application within the grace period provided, the application filed by such creditor would be deemed withdrawn.” (Emphasis supplied) D
3434. In the Statement of Objects and Reasons to the Second Amendment Bill, 2019, promulgated as an Ordinance, and thereafter, as the impugned Act, it was, inter alia, stated that it was necessitated to prevent potential abuse of the Code by certain classes of financial creditors, inter alia. This was necessary to prevent the derailing of the E time-bound CIRP, which was designed to secure the maximization of value of the assets. The provision only supplements the protection under Sections 65 and 75 of the Code. The intelligible differentia is projected as follows: i. Numerosity; F ii. Heterogeneity; iii. Lack of special expertise and individuality in decision making. It is sought to be contrasted with institutional decision-making which is associated with banks and financial institutions; iv. Typicality in determination of default. In other words, in the case of banks and financial institutions, records of public utilities, would show a default. In the case of allottees, records must be accessed through data publicly available under RERA;
3535. The object and rationale of the impugned provisions are stated to be as follows:
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i. Preventing multiple individual applications, which has the effect A of not only crowding the docket of the Adjudicating Authority and further holding up a process in which time is of the essence; ii. Safeguarding the interest of hundreds or even thousands of allottees who may oppose the application of a single home- B buyer; iii. Balancing the interest of members of the same sub-Class as also other financial creditors and other operational creditors. The availability of remedies to the members of the sub-class under RERA, in the case of allottees; iv. Lastly, the process becomes smoother and cost-effective. Unnecessary financial bleeding of the corporate debtor who is already in difficulty, is avoided.
3636. Time is of the essence of the Code. Proceedings are in the nature of proceedings in rem. It impacts the rights of creditors, including similarly placed creditors. It is therefore, reasonable and logical to place the threshold. The minimum threshold is a minimum requirement. The threshold is kept low and reasonable. This Court has upheld subclassification provided there is a rational basis. She drew support from the following decisions; E 17 i. Indra Sawhney and others v. Union of India and others ; ii. Lord Krishna Sugar Mills Limited and another v. Union of India and another18; iii. State of Kerala and another v. N.M. Thomas and others19; F iv. State of West Bengal and another v. Rash Behari Sarkar and another20; v. State of Kerala v. Aravind Ramakant Modawdakar and others 21. G
17 1992 Supp.(3) SCC 217 18 (1960) 1 SCR 39 19 (1976) 2 SCC 310 20 (1993) 1 SCC 479 21 (1999) 7 SCC 400 H
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