[2017] 5 S.C.R.

901

EXCEL CROP CARE LIMITED A

v.
COMPETITION COMMISSION OF INDIA AND ANOTHER
(Civil Appeal No. 2480 of 2014)
MAYOS,2017 B

[A. K. SIKRI AND N. V. RAMANA, JJ.]

Competition Act, 2002:
ss. 3(3)(a), 3(3}(b) and 3(3)(d) rlw. s. 3(1) and ss.
26(1),27(b) - Complaint by Food Corporation of India (FCI) - c
Alleging that the three appellant companies and one more company
had arrived at anti-competitive agreement in relation to tenders
issued by FCI for Aluminium Phosphide Tablets (APT) between the
years 2007 and 2009 - Competition Commission of India (CCI)
directed investigation - Director General (DG) gave report giving D
prima facie .finding affirming the allegations - CCI concluded that
the appellant-companies entered into anti-competitive agreement in
a concerted manner thereby offending the provisions of s.3 and
imposed penalties on all the three appellants at 9% of average 3
years turnover - Competition Appellate Tribunal confirmed the
finding of CCI - However, reduced the penalty holding that the E
penalty at 9% cannot be on the 'total turnover' and has to be
restricted to 9% of the 'relevant turnover' - On appeal questions
whether s. 3 was applicable in respect of tender issued prior to
coming into force of s. 3; whether CCI was barredfi·om investigating
the matter pertaining to tender floated in 20 JI as there was no
F
complaint about that tender; whether .finding as regards collusive
bidding was justified and whether the penalty has to be on 'total
turnover' or only on the 'relevant turnpver' of the offending
company - Held: Section 3 would be applicable in respect of the
tender issued prior to coming into force of s. 3 as well because the
anti-competitive conduct of the offending companies continued even G
after coming into force of s. 3 - 2011 tender also could be the
subject-matter of inquiry even when it was not referred to in the
complaint - Section 26(1) is wide enough to cover the investigation
by DG - While carrying out such investigation, il other facts also
get revealed, DG would be well within its power to include those as
H
901
902 SUPREME COURT REPORTS [2017] 5 S.C.R.

A well in his report - In the facts of the case. the ingredients of s. 3

stand satisfied and the CCI rightly held that provisions of s. 3(3)(a),
3(3)(b) and 3(3)(d) have been contravened by appellant-
companies - Section 27(b), while prescribing the penalty on the
'turnover', neither uses the prefix 'total' nor 'relevant' - In the
absence of specific provision as to whether such turnover has to be
B
product specific or entire turnover ol the offending company,
adopting the criteria of 'relevant turnover 'for the purpose of
imposition of penalty will be more in tune with ethos ol the Act and
the legal principles pertaining to imposition of penalties.
Interpretation of Statutes:
c
lnte1pretation of penal statute - Per Sikri, J.: Interpretation
which brings out inequitable or absurd results has to be
eschewed - Even if two interpretation are possible, one that leans
in favow; of i1?fi"inger has to be adopted, on the principle of strict
interpretation that needs to be given to such statutes - Per
D Ramana, J.: Where interpretative exercise involves various equitable
facets, literal interpretation might not be conclusive - An
interpretation should sub-serve the intent and purpose of the
statutory provision.
Doctri nes!Princ iples:
E Doctrine of proportionality - Applicability of- Discussed.
Doctrine of purposive inte1pretatio11 - Applicability of:
Principle of 'Noscitur a sociis' - Applicability ol
Dismissing the appeals, the Court
F HELD: Per A. K. Sikri, J.: 1.1 Though, the Competition
Act is of the year 2002 and was passed by the Legislature on 13•h
January, 2003, as per the provisions of Section 1(3) thereof, the
Act was to come into force from the date to be notified by the
Central Government in the Official Gazette. Notification was
issued by the Central Government wherein 31'' March, 2003 was
G specified as the appointed date. However, vide this notification,
some of the provisions of the Act, and not all the provisions,
were enforced. Section 3 of the Act came into force on 20'" May,
2009 vide S.O. 124l(E) dated 15'h May, 2009 on which date the
said notification was published in the Gazette of India as well.
H [Para 11 I [928-B-D I
 EXCEL CROP CARE LIMITED v. COMPETITION 903
COMMISSION OF INDIA

1.2 It is not in dispute that against tender of 2009, all the A

appellants had offered price of '388, even though their cost of
production differed. The Competition Appellate Tribunal
(COMPAT), in the impugned order has rightly held that merely
because 8'11 May, 2009 was the last date for submitting the tender,
that would not be the end of the matter as that is not the relevant
B
date for the purpose of applicability of Section 3 when the
tendering process continued, as the appellants had participated
in the said tender process on 1'' June, 2009 when the price bids
were opened and offered the negotiated price on 17'11 June, 2009.
This would mean that process of bidding was still on which went
well beyond the date of notifying provisions of Section 3 of the c
Act. The COMPAT has also rightly noted that the anti-competitive
conduct of the appellants was not limited to the 2009 tender alone.
It had considered tender dated November 03, 2009 floated by
the U.P. State Warehousing Corporation, tender dated .luly 13,
2010 of the Central Warehousing Corporation, tender dated July D
15, 2010 of the M.P. State Warehousing Corporation, and tender
dated February 14, 2011 of the Punjab State Cooperative SS &
Marketing Federation and found that even against these tenders
the appellants had quoted identical prices. Keeping in view the
said pattern of quotation, the COMPAT rightly opined that
notwithstanding any objection of the appellants premised on E
retrospective application of Section 3, the anti-competitive conduct
of Aluminium Phosphide Tablets (APT) manufacturers, i.e. the
appellants, continued right up to the year 2011, much after Section
3 of the Act had come into force. Therefore, even if 2009 tender
was to be completely ignored, the provisions of the Act would
F
nevertheless be attracted in the instant case. The provisions of
Section 3 are applicable to 2009 tender as well. !Paras 14, 151
[929-E-F; 931-C-EI
1.3 The Act, which prohibits anti-competitive agreements,
has a laudable purpose behind it. It is to ensure that there is a
healthy competition in the market, as it brings about various G
benefits for the public at large as well as economy of the nation.
In fact, the ultimate goal of competition policy (or for that matter,
even the consumer policies) is to enhance consumer well-being.
These policies are directed at ensuring that markets function
effectively. Competition policy towards the supply side of the H
904 SUPREME COURT REPORTS [2017] 5 S.C.R.

A market aims to ensure that consumers have adequate and

affordable choices. Another purpose in curbing anti-competitive
agreements is to ensure 'level playing field' for all market players
that helps markets to be competitive. It sets 'rules of the game'
that protect the competition process itself, rather than
competitors in the market. In this way, the pursuit of fair and
B
effective competition can contribute to improvements in economic
efficiency, economic growth and development of consumer
welfare. Competition is beneficial for the economy. (Paras 17,
19) (932-A-C; 934-C-D)
1.4 Competition law enforcement deals with
c anti-competitive practices arising from the acquisition or exercise
of undue market power by firms that result in consumer harm in
the forms of higher prices, lower quality, limited choices and lack
of innovation. Enforcement provides remedies to avoid situations
that will lead to decreased competition in markets. Effective
D enforcement is important not only to sanction anti-competitive
conduct but also to deter future anti-competitive practices. (Para
19) (935-E)
1.5 Cartels or anti-competitive agreements cause harm to
consumers by fixing prices, limiting outputs or allocating markets.
E Effective enforcement against such practices has direct visible
effects in terms of reduced prices in the market and this is also
supported by various empirical studies. (Para 201 (935-F-G)
1.6 Keeping in view the afor.esaid objectives that need to
be achieved, Indian Parliament enacted Competition Act, 2002.
F Need to have such a law became all the more important in the
wake of liberalisation and privatisation as it was found that the
law prevailing at that time, namely, Monopolistic Restrictive
Trade Practices Act, 1969 was not equipped adequately enough
to tackle the competition aspects of the Indian economy. The
law enforcement agencies, which include Competition
G Commission of India (CCI) and COMPAT, have to ensure that
these objectives are fulfilled by curbing anti-competitive
agreements. (Para 21) 1935-G-H; 936-A-BI
1. 7 In view of the explanation to Section 3(3)(d) also May
08, 2009 cannot be the determinative date on which the bid was
H
 EXCEL CROP CARE LIMITED v. COMPETITION 905
COMMISSION OF INDIA

submitted, as 'manipulating the process of bidding' is also covered A

by virtue of the said explanation and this process of bidding
continued even after May 20, 2009. The appellants had
'manipulated the process of bidding' on the ground that bids were
submitted on May 08, 2009 collusively, which was only the
beginning of the anti-competitive agreement between the parties
B
and this continued through the opening of the price bids on June
01, 2009 and thereafter negotiations on June 17, 2009 when all
the parties reduced their bids by same figure of '2 to bring their
bid down to '386 per kg. from '388 per kg. From this example,
he submitted that on May 08, 2009 there was a collusive bidding
but with concerted negotiations on June 17, 2009, in the continued c
process, it was rigging of the bid that was practiced by the
appellants. [Paras 29, 311 [941-G-H; 942-E-Fl
1.8 Collusive bidding/bid rigging which includes: (a) Level
tendering/bidding (i.e. bidding at same price - as in the present
case); (b) Cover bidding/courtesy bidding; (c) Bid rotation; (d) D
Bid Allocation. Even internationally, 'collusive bidding' is not
understood as being different from 'bid rigging'. These two
expressions have been used interchangeably. [Paras 32, 33[ [942-
G-H; 943-A-Bl
Competition Law by Richard Whish and David Bailey E
7'h Edition, page 536; UNCTAD Competition Glossmy
dated June 22, 2016; OECD Glossmy of Industrial
Organisation Economics & Competition Law; OECD
Guidelines for.fighting bid rigging; United States 0.ffice
of the Inspector General, Investigations (Fraud
Indicators Handbook)- referred to. F

1.9 The Legislature had in mind that the two expressions

are inter-changeably used. Sub-section (1) of Section 3 is couched
in the negative terms which mandates that no enterprise or
association of enterprises or person or association of persons
shall enter into any agreement, when such agreement is in respect G
of production, supply, distribution, storage, acquisition or control
of goods or provision of services and it causes or is likely to
cause an appreciable adverse effect on competition within India.
It can be discerned that first part relates to the parties which are
prohibited from entering into such an agreement and embraces H
906 SUPREME COURT REPORTS [2017) 5 S.C.R.

A within it persons as well as enterprises thereby signifying its very

wide coverage. This becomes manifest from the reading of the
definition of "ente171rise" in Section 2(h) and that of 'person' in
Section 2(1) of the Act. Second part relates to the subject matter
of the agreement. Again it is very wide in its ambit and scope as
it covers production, supply, distribution, storage, acquisition or
B
control of goods or provision of services. Third part pertains to
the effect of such an agreement, namely, 'appreciable adverse
effect on competition', and if this is the effect, purpose behind
this provision is not to allow that. Obvious purpose is to thwart
any such agreements which are anti-competitive in nature and
c this salubrious provision aims at ensuring healthy competition.
Sub-section (2) of Section 3 specifically makes such agreements
as void. Sub-section (3) mentions certain kinds of agreements
which would be treated a.s ipso facto causing appreciable adverse
effect on competition. It is in this backdrop and context that
'Explanation' beneath sub-section (3), which uses the expression
D
'bid rigging', has to be understood and given an appropriate
meaning. It could never be the intention of the Legislature to
exclude 'collusive bidding' by construing the expression 'bid
rigging'narrowly. No doubt, clause (d) of sub-section (3) of Section
3 uses both the expressions 'bid rigging' and 'collusive bidding',
E but the Explanation thereto refers to 'bid rigging' only. However,
it cannot be said that the intention was to exclude 'collusive
bidding'. Even if the Explanation does contain the expression
'collusive bidding' specifically, while interpreting clause (d), it can
be inferred that 'collusive bidding' relates to the process of bidding
as well. Keeping in mind the principle of purposive interpretation,
F
this meaning is given to 'collusive bidding'. It is more so when
the expressions 'bid rigging' and 'collusive bidding' would be
overlapping, under certain circumstances. The two expressions
are to be interpreted using the principle of 11oscit11r a sociis, i.e.
when two or more words which are susceptible to analogous
G meanings arc coupled together, the words can take colour from
each other. (Para 34( f944-H; 945-A-II]
Leelabai Gajanan Pansare & Ors. v. Oriental insurance
Company Limited & Ors. (2008) 9 SCC 720 : f2008]
12 SCR 248; Thakorla/ D. Vadgama v. State of Gujarat
H (1973) 2 sec 413 : (1974] lSCR 178; M. K.
 EXCEL CROP CARE LIMITED v. COMPETITION 907
COMMISSION OF INDIA

Ranganathan v. Government of Madras & Ors. [19551 A

2 SCR 374 - relied on.
1.10 In view of the aforesaid purpose sought to be achieved
and when applied to the facts of the present case, after finding
that the anti-competitive conduct of the appellants continued after
coming into force of provisions of Section 3 of the Act as well, the B
plea of retrospectivity pales into insignificance. In the aforesaid
conspectus, principle of retroactivity would definitely apply. The
CCI was well within its jurisdiction to hold an enquiry under
Section 3 of the Act in respect of tender of March, 2009. [Paras
22, 26 and 341 1936-B; 939-E; 946-BI
c
Competition Commission of India v. Steel Authority of
India Limited & Anr. (2010) 10 SCC 744: [20101 11
SCR112; R. Rajagopal Reddy (Dead) by LRs. & Ors. v.
Padmini Chandrasekharan (Dead) By Lrs. (1995) 2 SCC
630 : (19951 1 SCR 715; Zile Singh v. State of Haryana
& Ors. (2004) 8 SCC 1 : (20041 5 Suppl. SCR 272 - D
relied on.
Kingfisher Airlines v. Competition Commission of India
(2010) 4 Comp. LJ 557 (Born) - approved.
2. It cannot be said that the 2011 tender could not be the E
subject matter of inquiry when it was not referred to in the
communication of the Food Corporation of India (FCI) or order
of the CCI. Section 26(1) is wide enough to cover the investigation
by the Director General (DG). The entire purpose of such an
investigation is to cover all necessary facts and evidence in order
to see as to whether there are any anti-competitive practices F
adopted by the persons complained against. For this purpose, no
doubt, the starting point of inquiry would be the allegations
contained in the complaint. However, while carrying out this .
investigation, if other facts also get revealed and are brought to
light, revealing that the 'persons' or 'enterprises' had entered G
into an agreement that is prohibited by Section 3 which had
appreciable adverse effect on the competition, the DG would be
Well within his powers to include those as well in his report. Even
when the CCI forms prima facie opinion on receipt of a complaint
which is recorded in the order passed under Section 26(1) of the
H
908 SUPREME COURT REPORTS [2017] 5 S.C.R.

A Act and directs the DG to conduct the investigation, at the said

initial stage, it cannot foresee and predict whether any violation
of the Act would be found upon investigation and what would be
the nature of the violation revealed through investigation. If the
investigation process is to be restricted in the manner projected
by tile appellants, it would defeat the very purpose of the Act
B
which is to prevent practices having appreciable adverse effect
on the competition. [Paras 35, 361 [946-D; 948-G-H; 949-A-Cf
3.1 It was not only 2009 FCI tender in respect of which DG
found the violation. Pertinently, the investigation of DG revealed
that the appellants had been quoting such identical rates much
c prior to and even after May 20, 2009. No doubt, in relation to
tenders prior to 2009, it cannot be said that there was any violation
of law by the appellants. However, prior practice definitely throws
light on the formation of cartelisation by the appellants, thereby
making it easier to understand the events of 2009 tender. [Para
D 37) [949-E-GI
3.2 The trend of quoting identical price in respect of so many
tenders, not only of FCI but other Government bodies as well, is
sufficient to negate all explanations given by the appellants taking
the pretext of coincidence or economic forces. [Para 381 [951-DI
E 3.3 It is not correct to say that since dominant position is
enjoyed by the buyer, it leads to parallel pricing and this conscious
parallelism takes place leading to quoting the same price by the
suppliers. Argument of parallelism is not applicable in bid cases
and it fits in the realm of market economy. There cannot be
F coincidence to such an extent that almost on all occasions price
quoted by the three appellants is identical, not even few paisa
more or less from each other. That too, when the cost structure,
i.e. cost of production of this product, of the three appellants
sharply varies with each other. [Paras 39, 401 [951-F; 952-A-Cf

G 3.4 There is a 10 years' history of quoting identical prices.

There are only four suppliers of the product in the market out of
which three are the appellants. Even when the cost of production
is different, they have quoted identical price. Even when. the
geographical location of the three suppliers is different, strange
coincidence of identical pricing is found, that too repeatedly. Profit
H
 EXCEL CROP CARE LIMITED v. COMPETITION 909
COMMISSION OF INDIA

margins would be different, still quotations are same. To different A

parties in respect of different tenders, different rates are quoted.
Still whatever price is quoted in respect of one particular tender,
that is identical. It would be too much of a coincidence, difficult
to believe. Thus, onus was on the appellants in view of Section 3
of the Act, and that too heavy onus, to justify the above trend, but B
they have failed to discharge this burden. Therefore, the
ingredients of Section 3 stand satisfied and the CCI rightly held
that provisions of Section 3(3)(a), 3(3)(b) and 3(3)(d) have been
contravened by the appellants. [Para 40] [952-C-G[
3 .5 It is not in dispute that all the three appellants, as well
as M/s. Agrosynth Chemicals Limited did not participate in the c
tender of May, 2011. These are the four manufacturers in all.
According to all the appellants, their decision not to participate
in the aforesaid bid was the onerous, unreasonable, arbitrary and
unquestionable conditions that were put in the said tender. As
these were not acceptable to them, they individually decided not D
to take part in the tender, which was a valid business decision
and not result of pre-concerted agreement of the appellants. From
the conduct of the three appellants, it becomes manifest that
reason to boycott the May 2011 tender was not the purported
onerous conditions, but it was a concerted action. Otherwise, if
the appellants were genuinely interested in participating in the E
said tender and were aggrieved by the aforesaid conditions, they
could have taken up the matter with the FCI well in time. They,
therefore, could request the FCI to drop the same (in fact FCI
dropped these conditions afterwards when the matter was brought
to their notice). However, no such effort was made. Therefore, F
not making any sincere effort in this behalf by any of the appellants
clearly shows that they were in hand in glove in taking a decision
not to bid against this tender. This conclusion gets strengthened
by the fact that these are the only four suppliers (including three
appellants) in the market for this product. Reaction of not
participating in the said tender by four suppliers could have been G
perceived otherwise, had there been a number of manufacturers
in the market and four out of them abstaining. Abstention by
hundred percent (who are only four) makes the things quite
obvious. Events get quite apparent when examined along with
past history of quoting identical prices. Since collusion stands H
910 SUPREME COURT REPORTS [2017] 5 S.C.R.

A proved by the conduct of the appellants in abstaining from the

bidding in respect of May 2011 tender, requirement of Section
3(3)(d) of the Act read with 'explanation' thereto stands satisfied,
viz., concerted action based on an agreement/arrangement
between the appellants, resulted in restricting or manipulating
competition or process of bidding, since the said act was collusive
B
in nature. [Paras 45, 48 and 491 [954-E-G; 955-F-H; 956-A-EI
Dyestuffs, Imperial Chemical Industries Ltd v.
Commission of the European Communities (1972) ECR
619 - referred to.
c 4.1 Under Section 27(b) of the Act, penalty of 10% of the
turnover is prescribed as the maximum penalty with no provision
for minimum penalty. CCI had chosen to impose 9% of the
average turnover keeping in view the serious nature of the breach
on the part of these appellants. The COMPAT has maintained
the rate of penalty i.e. 9% of the three years average turnover.
D However, it has not agreed with the CCI that 'turnover' mentioned
in Section 27 would be 'total turnover' of the offending company.
In its opinion it has to be 'relevant turnover' i.e. turnover of the
product in question. [Paras 52, 531 (957-A-Cf
4 .2 Insofar as the third appellant is concerned, the 'relevant
E turnover' and 'total tu.rnover' is the same as this company
produced only APT. CCI had imposed penalty of '1.57 crores
on the basis of their turnover of this product. However, in its
case also, penalty is reduced on the ground that it is relatively a
small enterprise. Moreover, in respect of May 2011 tender, it
F could not have taken part since its production capacity was only
25 MT a month. Though, the aforesaid plea was not accepted
while discussing the merits of the case, the COMPAT deemed it
proper to take this aspect into consideration when it came to
imposition of penalty. On the aforesaid basis, COMPAT reduced
the penalty to 1110"' of penalty awarded by CCI i.e. '15.70 lakhs.
G It, therefore, held that penalty of 9% would be limited to the
product/service in question - in this case, the APT - which was
the relevant product for the enquiry. The penalty, thus, stands
substantially reduced in the cases of the two appellants. (Paras
53, 54] [957-C-D, F-H; 958-A]
H 4.3 Section 27(b) of the Act while prescribing the penalty
 EXCEL CROP CARE LIMITED v. COMPETITION 911
COMMISSION OF INDIA

on the 'turnover', neither uses the prefix 'total' nor 'relevant'. A

In the absence of specific provision as to whether such turnover
has to be product specific or entire turnover of the offending
company, adopting the criteria of 'relevant turnover' for the
purpose of imposition of penalty will be more in tune with ethos
of the Act and the legal principles which surround matters
B
pertaining to imposition of penalties. [Paras 73, 741 [965-E-FI
4.4 Under Section 27(b) of the Act, penalty can be imposed
under two contingencies, namely, where an agreement referred
to in Section 3 is anti-competitive or where an enterprise which
enjoys a dominant position misuses the said dominant position
thereby contravening the provisions of Section 4. In case where c
the violation or contravention is of Section 3 of the Act, it has to
be pursuant to an 'agreement'. Such an agreement may relate to
a particular product between persons or enterprises even when
such persons or enterprises are having production in more than
one product. There may be a situation, which is precisely in the D
instant case, that some of such enterprises may be multi-product
companies and some may be single product in respect of which
the agreement is arrived at. [Para 74[ [965-G-H; 966-A-B[
4.5 Interpretation which brings out such inequitable or
absurd results has to be eschewed. The principle of strict E
interpretation of a penal statute would support and supplement
the aforesaid conclusion. Even if two interpretations are possible,
one that leans in favour of infringer has to be adopted, on the
principle of strict interpretation that needs to be given to such
statutes. [Para 74[ [966-C; 970-F; 971-F-GI
F
Abhiram Singh and Others v. C.D. Commachen (Dead)
by L.Rs. and Ors. AIR 2017 SC 401: [20171'1 SCR
158 - followed.
4.6 When the agreement leading to contravention of
Section 3 involves one product, there seems to be no justification G
for including other products of an enterprise for the purpose of
imposing penalty. This is also clear from the opening words of
Section 27 read with Section 3 which relate to one or more
specified products. It also defies common sense that though
penalty would be imposed in respect of the infringing product,
the 'maximum penalty' imposed in all cases be prescribed on the H
912 SUPREME COURT REPORTS [2017] 5 S.C.R.

A basis of 'all the products' and the 'total turnover' of the enterprise.
It would be more so when total turnover of an enterprise may
involve activities besides production and sale of products, like
rendering of services etc. It, therefore, leads to the conclusion
that the turnover has to be of the infringing products and when
that is the proper yardstick, it brings home the concept of 'relevant
B
turnover'. [Para 741 [971-G-H; 972-A-BJ
4. 7 Even the doctrine of 'proportionality' would suggest that
the Court should lean in favour of 'relevant turnover'. No doubt
the objective contained in the Act, viz., to discourage and stop
anti-competitive practices has to be achieved and those who are
c perpetrators of such practices need to be indicted and suitably
punished. It is for this reason that the Act contains penal
provisions for penalising such offenders. At the same time, the
penalty cannot be disproportionate and it should not lead to
shocking results. That is the implication of the doctrine of
D proportionality which is based on equity and rationality. It is, in
fact, a constitutionally protected right which can be traced to
Article 14 as well as Article 21 of the Constitution. The doctrine
of proportionality is aimed at bringing out 'proportional result or
proportionality stricto sensu '. It is a result oriented test as it
examines the result of the law in fact the proportionality achieves
E balancing between two competing interests: harm caused to the
society by the infringer which gives justification for penalising
the infringer on the one hand and the right of the infringer in not
suffering the punishment which may be disproportionate to the
seriousness of the Act. (Para 741 1972-C-EI
F 4.8 No doubt, the aim of the penal provision is also to ensure
that it acts as deterrent for others. At the same time, such a
position cannot be countenanced which would deviate from
'teaching a lesson' to the violators and lead to the 'death of the
entity' itself. (Para 74] 1972-FI
G 4.9 If the criteria of total turnover of a company by including
within its sweep the other products manufactured by the company,
which were in no way connected with anti-competitive activity, it
would bring about shocking results not comprehended in a country
governed by Rule of Law. Cases at hand itself amply demonstrate
H that the CCI's contention, if accepted, would bring about
 EXCEL CROP CARE LIMITED v. COMPETITION 913
COMMISSION OF INDIA

anomalous results. (Para 741 [972-G) A

4.10 The doctrine of 'purposive interpretation' may again
lean in favour of 'relevant turnover' as the appropriate yardstick
for imposition of penalties. There is a legislative link between
the damage caused and the profits which accrue from the cartel
activity. There has to be a relationship between the nature of B
offence and the benefit derived therefrom and once this
co-relation is kept in mind, while imposing the penalty, it is the
affected turnover, i.e., 'relevant turnover' that becomes the
yardstick for imposing such a penalty. In this hue, doctrine of
'purposive interpretation' as well as that of 'proportionality'
overlaps. (Para 74) [973-C-El
c
4.11 The purpose and objective behind the Act is to
discourage and stop anti-competitive practice. Penal provision
contained in Section 27 of the Act serves this purpose as it is
aimed at achieving the objective of punishing the offender and
acts as deterrent to others. Such a purpose can adequately be D
served by taking into consideration the relevant turnover. It is
in the public interest as well as in the interest of national economy
that industries thrive in this country leading to maximum
production. Therefore, it cannot be said that purpose of the Act
is to 'finish' those industries altogether by imposing those kinds E
of penalties which are beyond thefr means. It is also the purpose
of the Act not to punish the violator even in respect of which
there are no anti-competitive practices and the provisions of the
Act are not attracted. [Para 74) [973"F-Hl
4.12 In the countries where the principle of 'total turnover' F
was prevalent, in some of the jurisdictions, the guidelines are
also framed which ensure that the penalty does not become
disproportionate, for example, in the UK, the Office of Fair Trade
(OFT) has 'guidelines as to the appropriate amount of penalty'.
In contrast, there are no similar guidelines issued as far as India
is concerned and in the absence thereof imposition of penalty, G
taking into consideration total turnover, may bring about
disastrous results which happened in the instant case itself with
the imposition of penalty by the CCI. Thus, there is no error in
the approach of the order of the COMPAT interpreting Section
27(b). [Para 74) [974-B-E) H
914 SUPREME COURT REPORTS [2017] 5 S.C.R.

A State qfJharkhand and Another v. Govind Singh (2005)

10 SCC 437 : [2004) 6 Suppl. SCR 651; Commissioner
of Income Tax, Bangalore v. J.H Yadagiri (1985) 4 SCC
343 : [1985] 2 Suppl. SCR 711; Southern Motors v.
State of Karnataka and Others AIR 2017 SC 476 -
relied on.
B
Prabhudas Damodar Kotecha & Ors. v. Manhabald
Jeram Damodar & Am: (2013) 15 SCC 358 : 12013) 9
SCR 52; Raghunath Rai Bareja & Anr. v. Punjab
•
National Bank & Ors. (2007) 2 SCC 230 : [2006) 10
Suppl. SCR 287; V.L.S. Finance Ltd. v. Union of India
c & Ors. (2013) 6 SCC 278: [20131 8 SCR 849; Bharat
Aluminium Company v. Kaiser Aluminium Technical
Services Inc. (2012) 9 SCC 552 : [2012) 12 SCR 327;
Suresh Chand v. Gulam Chisti (1990) 1 SCC 593 :
[1990) 1 SCR 186; Raghubans Narain Singh v. Uttar
D Pradesh Government through Collector of Bijnor [1967)
1 SCR 489; Arvind Mohan Sinha v. Amulya Kumar
Biswas & Ors. (1974) 4 SCC 222 : [1974] 3 SCR 133;
State of Haryana & Ors. v. Sant Lal & Am: (1993) 4
SCC 380 : [19931 2 Suppl. SCR 238; Bhagat Ram v.
State of Himachal Pradesh & Ors. (1983) 2 SCC 442 -
E referred to.
Southern Pipeline Contractors Conrite Walls (Pty) Ltd.
v. The Competition Commission Case No. 105/CAC/
Dec 10) (106/CAC/Dec 10); Ontario vs. Canadian
Pacific Ltd. [19951 2 SCR 1031 - referred to.
F
Per N. V. Ramana, J.: (Concurring)
HELD: 1. A plain reading of Section 27 of the Act elucidates
that the Commission is empowered to impose penalty and to the
extent as it deems fit but not exceeding ten percent of the
G turnover. Section 27(b) emphasize that penalty is to be levied on
'person or enterprise' who have contravened Section 3 or Section
4 of the Act. [Para 6) [978-C]
2. Change brought about by the amendment to Section
27(b) is that the mandatory nature of the Proviso was made
H discretionary by substitution of'shall' with 'may'. This amendment
 EXCEL CROP CARE LIMITED v. COMPETITION 915
COMMISSION OF INDIA

was done to bring the proviso in tune with the rest of Section 27, A
which uses the expression "it may pass all or any of the following
order" and main part of clause (b), which confers discretion upon
the Commission to impose penalty as it may deem fit, subject to
the rider that it shall not be more than 10% of the average of the
turnover for the last three preceding financial years. Clauses (c) B
and (d) of Section 27 also use the word 'may', which signifies that
the Commission has the discretion to pass a particular order,
which it may deem proper in the facts and circumstances of the
case. (Para 6) (978-E-Gl
3. As the interpretative exercise, as in the present case,
involves various equitable facets, literal interpretation might not C
be conclusive. An interpretation should sub-serve the intent and
purpose of the statutory provision. Therefore the Court would
have to look beyond the plain and simple meaning, to extract the
intention of the Act and rationalize the fining policy under Section
27 (b) of the Act. !Para 8) (979-DI D
BCN Aduanasy Transporters, SA v. Attorney General
Judgment of the Supreme Court of Spain No. 112/2015,
Case 2872/2013, OCL 183 (ES 2015) dated 29'"
January 2015; Southern Pipeline Contractors Conrite
Walls (Pty) Ltd. And the Competition Commission 105/ E
CAC/DeclO (South Africa) - referred to.
4. The Competition Act, 2002 is a regulatory legislation
enacted to maintain free market so that the Adam Smith's concept
of invincible hands operate unhindered in the background.
Further it is clear from the Statement of objects and reason that F
this law was foreseen as a tool against concentration of unjust
monopolistic powers at the hands of private individuals which
might be detrimental for freedom of trade. Competition law in
India aims to achieve highest sustainable levels of economic
growth, entrepreneurship, employment, higher standards of living
for citizens, protect economic rights for just, equitable, inclusive G
and sustainable economic and social development, promote
economic democracy, and support good governance by restricting
rent seeking practices. Therefore an interpretation should be
provided which is in consonance with the aforesaid objectives.
(Para 9] (979-E-GJ H
916 SUPREME COURT REPORTS [2017] 5 S.C.R.

A CCI v. SAIL (2010) 10 sec 744 : (20101 11 SCR 112

- relied on.
5. The usage of the phrase 'as it may dee in fit' as occurring
under Section 27 of the Act, is indicative of the discretionary
power provided for the fining authority under the Act. As the law
B abhors absolute power and arbitrary discretion, this discretion
provided under Section 27 needs to be regulated and guided so.
that there is uniformity and stability with respect to imposition of
penalty. This discretion should be governed by rule of law and
not by arbitrary, vague or fanciful considerations. [Para 101 [979-
G-H; 980-A-BI
c
Dilip N. Shro.fJv. Joint CIT (2007) 6 SCC 329 : [20071
7 SCR 499; Hindustan Steel Ltd. vs. State of Orissa AIR
1970 SC 253 : [19701 1 SCR 753 - relied on.
6. Any penal law imposing punishment is made for general
D good of the society. As a part of equitable consideration, only
those should be punished who deserve it and to the extent of
their guilt. Further it is well established that the principle
of proportionality requires the fine imposed must not exceed what
is appropriate and necessary for attaining the object pursued.
[Para 111 [981-D-EJ
E
Coimbatore District Central Co-operative Bank v.
Coimbatore District Central Co-operative Bank
Employees Assn. (2007) 4 SCC 699 - relied on.
7. In consonance of established jurisprudence, the principle
of proportionality needs to be imbibed irito any penalty imposed
F
under Section 27 of the Act. Otherwise excessively high fines
may over-deter, by discouraging potential investors, which is not
the intention of the Act. Therefore the fine under Section 27(b)
of the Act should be determined on the basis of the relevant
turnover. [Para 111 (982-A-BI
G
8. The starting point of determination of appropriate
penalty should be to determine relevant turnover and thereafter
the tribunal should calculate appropriate percentage of penalty
based on facts and circumstances of the case taking into
consideration various factors while determining the quantum. But
H such penalty should not be more than the overall cap of 10% of
 EXCEL CROP CARE LIMITED v. COMPETITION 917
COMMISSION OF INDIA

the entity's relevant turnover. Such interpretation of Section 27 A

(b) of the Act, wherein the discretion of the Commission is guided
by principles established by law would sub-serve the intention of
the enactment. [Para 141 [982-G-H; 983-AI
Case Law Reference
In the Judgment of A. K. Sikri, J.: B

[20101 11 SCR112 relied on Para 22

[19951 1 SCR 715 relied on Para 26
[2004] 5 Suppl. SCR 272 relied on Para 26
(2010) 4 Comp. LJ 557 (Born) approved Para 27
c
[2008] 12 SCR 248 relied on Para 34
[19741 1 SCR 178 relied on Para 34
[1955] 2 SCR 374 relied on Para 34
D
[20131 9 SCR 52 referred to Para 58
[2006] 10 Suppl. SCR 287 referred to Para 58
[2013] 8 SCR 849 referred to Para 58
[2012] 12 SCR 327 referred to Para 58
E
[1990] 1 SCR 186 referred to Para 61
[1967] 1 SCR 489 referred to Para 61
[1974) 3 SCR 133 referred to Para 68
[1993) 2 Suppl. SCR 238 referred to Para 68 F
(1983) 2 sec 442 referred to Para 68
106/CAC/Dec 10 referred to Para 71
[1995) 2 SCR 1031 referred to Para 74
[2004] 6 Suppl. SCR 651 relied on Para 74 G
[1985] 2 Suppl. SCR 711 relied on Para 74
AIR 2017 SC 476 relied on Para 74
[2017) 1 SCR 158 followed Para 74
H
918 SUPREME COURT REPORTS [2017] 5 S.C.R.

A In the Judgment of N.V. Ramana, J.:

[2010) 11 SCR 112 relied on Para 10
[2007] 7 SCR 499 relied on Para 10
[1970) 1 SCR 753 relied on Para 10
B (2007) 4 sec 699 relied on Para 11
CIVIL APPELLATE JURISDICTION : Civil Appeal No. 2480
of2014.
From the Judgment and Order dated 29.10.2013 of the Competition
Appellate Tribunal in Appeal No. 79 of2012
c
WITH
C. A. Nos. 53-55, 2874 and 2922 of2014.
N. K. Kaul, ASG, Krishnan Venugopal, Sr. Adv, Rahul Goel,
Ms. Anu Monga, N eeraj Lalwani, Rishabh Arora, Ni tish Sharma, Gourav
D Ray, Rohit K. Singh, Arjun Krishnan, Sanyat Lodha, Vaibhav Gaggar,
Ankur Singh, Ms. Neha Mishra, Saksham Dhingra, B. Vivekananda,
Ravinder Narain, Ms. Kanika Gomber, Kishan Rawat, Siddharth Banthia,
Rajan Narain, Neeraj Choudhary, Mohit Paul, Ms. Diksha Jhingan, Kirt
Agarwal, Vikas Arora, Mohit Paul, Ajit Pudussery, K. Vijayan,
E S. H. Hazarika, Advs., for the appearing parties.
The Judgments of the Court were delivered by
A. K. SIKRI, J. 1. All these Civil Appeals arise out of the
common judgment and order dated October 29, 2013 passed by the
Competition Appellate Tribunal (for short, 'COMPAT'). These
F proceedings have their origin in the letter dated Febrnary 04, 2011 written
by the Food Corporation of India (for short, 'FCI') to the Competition
Commission oflndia (for short, 'CCI') complaining ofan anti-competitive
agreement purportedly arrived at between Mis. Excel Crop Care Limited,
Mis. United Phosphorous Limited (for short, 'UPL'), Mis. Sandhya
G Organics Chemicals (P) Ltd. respectively (the appellants in CA Nos.
2480, 2874 and 2922 of 2014 and hereinafter referred to as the
'appellants') and Agrosynth Chemicals Limited, in relation to tenders
issued by the FCI for Aluminium Phosphide Tablets (for short, 'APT')
of 3 gms. between the years 2007 and 2009. The CCI entrnsted the
matter to the Director General (DG) for investigation, who submitted his
H
 EXCEL CROP CARE LIMITED v. COMPETITION 919
COMMISSION OF INDIA [A. K. SIKRI, J.]

report on October 14, 2011 giving hisprimafacie findings affirming the A

allegations of the FCI that the appellants had entered into an anti-
competitive agreement, which was violative of Section 3(3) of the
Competition Act, 2002 (hereinafter referred to as the 'Act'). On receipt
of this complaint, the CCI issued notices to the appellants who filed their
objections. After hearing the parties, the CCI passed the order dated
B
April 23, 2012 whereby it concluded that the appellants had entered into
the anti-competitive agreement in a concerted manner thereby offending
the provisions of Section 3 of the Act. As a consequence, it imposed
penalty@ 9% on the average total turnover of these establishments for
last three years. Appeals were filed by the appellants before the
COMPAT under Section 53-B of the Act. In these appeals, the issue on c
merits has been decided against the appellants by COMPAT in its
judgment dated October 29, 2013. These appeals question the validity
of the order of the COMPAT on the aforesaid aspect.
Now the facts in detail :
2. An Inquiry in this case was initiated by the CCI on the basis of D
letter/ complaint dated Febrnary 04, 2011 written by the Chairman and
Managing Director of the FCI to the CCI. It was alleged in this complaint
that four manufacturers of APT had formed a cartel by entering into an
anti-competitive agreement amongst themselves and on that basis they
had been submitting their bids for last eight years by quoting identical E
rates in the tenders invited by the FCI for the purchase of APT. It was
alleged that the requirement for APT was almost got doubled during the
·period 2007-2009 and was likely to rise further in view of the requirement
of large quantity of these· tablets by the FCI, Central Warehousing
Corporation and other State agencies for preservation of food grains,
which these agencies were storing in their godowns. The CCI assigned F
the complaint to the DG for investigation. The DG collected required
information from the FCI and other Government agencies dealing in
warehousing and storage of food grains and also from Central Insecticides
Board and Registration Committee, Faridabad. Representatives ofFCI
were also examined. After collecting the aforesaid information, the DG G
submitted his report with the following findings:
(a) The main market of APT in India was that of the institutional
sales and a majority of buyers were Government agencies. The
number of private buyers was insignificant. APT is sold in the
box of 3 gms. tablets, 12 gms. tablets, and a sachet of 10 gms. in H
920 SUPREME COURT REPORTS [2017] 5 S.C.R.

A powder. Out of this, 3 gms. tablets constitute 56% of the total

sale. Sale of these 3 gms. tablets was restricted to the Government
agencies and approved pest control operators, which could not be
sold in the open market. These Government agencies were
procuring APT tablets of ~40 crores annually.
B (b) There were only four manufacturers of APT, namely, Mis.
Excel Crop Care Limited, Mis. UPL, Mis. Sandhya Organics
Chemicals (P) Ltd. (which· are the three appellants herein) and
Agrosynth Chemicals Limited.
( c) It was noted that the FCI had adopted the process of tender,
c which is normally a global tender. The concerned tender had
two-bid system, that is first techno commercial and then the
financial bid. On the basis of the bids, the rate running contracts
are executed with successful bidders. The DG found that there
was also a Committee comprising of responsible officers for
evaluation of technical and price bids. As per the practice, the
D lowest bidder is invited by the Committee for negotiations and
after negotiations, the Committee submits the report giving its
recommendations and the contracts are awarded and after that
the payment for the purchased tablets is released by the concerned
regional offices.
E (d) It was found that right from the year 2002, up to the year
2009, all the four parties used to quote identical rates, excepting
for the year 2007. In 2002, Rs. 2451- was the rate quoted by
these four parties and in the year 2005 it was ~310 (though the
tender was scrapped in this year and the material was purchased
F from Central Ware Housing Corporation@ ~290). In November
2005, though the tenders were invited, all the parties had abstained
from quoting. In 2007, Mis. UPL had quoted the price which was
much below the price of other competitors. In 2008, all the parties
abstained from quoti1ig, while in 2009 only the three appellants,
barring Agrosynth Chemicals Limited, participated and quoted
G uniform rate of~388, which was ultimately brought down to ~386
after negotiations.
It was also found that the tender documents were usually
submitted in-person and the rates were normally filled with hand.
( e) In respect of the tender floated in the year 2009 for
H
 EXCEL CROP CARE LIMITED v. COMPETITION 921
COMMISSION OF INDIA (A. K. SJKRI, J.]

procurement of fixed quantity of 600 MT with a provision of± A

I 0%, the three appellants had quoted identical rates of~388. It
was found that the tender documents were to be submitted by
2:00 p.m. on May 08, 2009 and bid was to be opened at 3:00 p.m.
on the same day. For submitting the bids, representatives of the
three appellants made common entries in the Visitors' Register.
B
In fact, one Shri S.K. Bose of Mis. Excel Crop Care Limited
made these entries on behalf of the representatives of other
competitors as well.
(f) By analysing the aforesaid bids carefully and taking into
consideration the total number of 16 tenders, including tenders
dated May 08, 2009, the DG recorded that:
c
(i) pricing pattern definitely showed the practice of quoting
identical pricing by all the three appellants or at some other
times by two appellants, including M/s. Agrosynth Chemicals
Limited;
D
(ii) the explanation given by the appellants was unconvincing.
Though, the appellants had stated that rise in price was mostly
attributed to increase in price by China during the Beijing
Olympics, but it was noticed that even during the period when
the Phosphorous prices had fallen, no reflection thereof was
seen in the high prices quoted by tl~e appellants; E

(iii) examination of the cost structure of each company reflected

that there was nothing common between the appellants as far
as the said cost structure was concerned and, therefore, quoting
of identical prices by all the appellants was unnatural; and
F
(iv) joint boycotting by the appellants, at times, showed their
concerted action, which happened again in March 2011 when
the FCI had issued e-tender, which was closed on July 25,
2011. According to the DG, explanation given by the appellants
and M/s. Agrosynth Chemicals Limited for boycotting the said
tender to the effect that tender conditions were very stringent, G
was an afterthought and did not inspire any confidence. As
per the DG, even ifthe conditions were stringent, the appellants
could discuss the same with the FCI as there was sufficient
time between March 2011 and July 25, 2011, but it was not
done.
H
922 SUPREME COURT REPORTS [2017] 5 S.C.R.

A On the basis of the aforesaid findings, the DG framed an opinion

that the appellants had contravened the provisions of Sections 3(3 )(a),
3(3)(b) and 3(3)(d) read with Section 3(1) of the Act.
3. The CCI took up the report of the DG for consideration and
for this purpose sent a copy thereof to all the four manufacturers inviting
B their objections, if any, thereupon. Since M/s. Agrosynth Chemicals
Limited was ultimately exonerated and spared by the CCl, it may not be
necessary to deal with the objections of the said party. The three
appellants contested the report on facts as well as in law. Identical legal
submissions were made, which are pointed out, in capsulated form, as
under:
c
(a) Since Sections 3 and 4 of the Act were activated and brought
into force only with effect from May 20, 2009, tenders prior to
this date could not be the subject matter ofinquiry for ascertaining
whether there was any violation of Section 3 of the Act or not.
Qua March 2009 tender, it was contended that last date of
D submission of tender was May 08, 2009 and the bids were
submitted by the appellants on that date, i.e., before the
enforcement of Section 3, which came into operation on May 20,
2009. No doubt, the tender was evaluated and awarded only
after May 20, 2009, but insofar as role of the appellants is
E concerned, that came to an end on the submission of the tender
and, therefore, tender of March, 2009 could not be the subject
matter of enquiry.
(b) Insofar as tender of 2011 is concerned, it was contended that
inquiry in respect of boycotting the said tender by the appellants
F was without jurisdiction inasmuch as the FCI in its complaint dated
Febrnary 04, 2011 did not mention about the said tender.
(c) On merits, increase in the price over a period of time,
particularly between years 2009 and 2011, was sought to be
justified on the ground that the 'price of yellow phosphorous,
G which was to be procured from China, had increased'. It was
further submitted that merely because there was identity of prices
quoted by the appellants, it would not mean that there was any bid
rigging or formation of cartel by the appellants. Submission in this
behalf was that the market forces brought the situation where the
prices became so competitive and it had led to the aforesaid trend.
H
 EXCEL CROP CARE LIMITED v. COMPETITION 923
COMMISSION OF INDIA [A. K. SIKRI, J.]

According to them, as a practice, the Central Warehousing A

Corporation finalised the tender in the beginning of a particular
year which used to be considered as the benchmark for other
tenders for that year resulting in likelihood of identical pricing. As
far as common entry having been made by Mr. S.K. Bose of
M/s. Excel Crop Care Limited on May 08, 2009 on behalf of the
B
representatives of the other competitors as well in the Visitors'
Register is concerned, it was stated that since the representatives
knew each other well and had entered the premises ofFCI at the
same time, Mr. Bose mentioned the names of others as well which
was neither unnatural nor abnormal and no inference of cartel
formation could be drawn therefrom. Boycotting of tender of C
May 2011 was tried to be justified on the ground that there were
unreasonable conditions prescribed in the tender making it
impossible to submit the bid, particularly, the condition of depositing
~30 lakhs as Earnest Money Deposit (EMO), whereas in the earlier
tenders the EMD was only ~I 0 Iakhs and ~8.25 lakhs. It was
D
further submitted that, notwithstanding the same price quoted by
the appellants, each time the tender was evaluated by a Committee
of Officers of the FCI and no such suspicion· was raised by the
Committee. On the contrary, this aspect was specifically gone
into and the Committee was satisfied that quoting of identical price
was not due to any cartalisation. E
M/s. Sandhya Organics Chemicals (P) Ltd. raised an additional
plea qua non-participation in the 2011 tender by submitting that it
did not have the capacity to supply 75 MT per month, which was
the requirement in the said tender and, therefore, it chose not fo
participate. F
4. The CCI passed the order discussing all the aforesaid aspects
in detail and rejecting each and every contention of the appellants, and,
thereby concluding that the appellants had entered into an agreement or
understanding, and indulged in anti-competitive activities while submitting
their bids in response to the tenders issued by the FCI. G
5. For indulging in anti-competitive practices in violation of the
provisions of Section 3 of the Act, the CCI imposed penalties upon all
the three appellants at 9% ofaverage 3 years' turnoverofthese appellants
under Section 27(b) of the Act. Quantifying the same, penalty to the
tune of ~63.90 crores was imposed upon M/s. Excel Crop Care Limited, H
924 SUPREME COURT REPORTS [2017] 5 S.C.R.

A ~1.57 crores uponMis. Sandhya Organics Chemicals (P) Ltd., and UPL
was fastened with the penalty of~252.44 crores.
6. The appellants filed three separate appeals before the COM PAT.
The legal and factual arguments remained the same before COMPAT
as well. In addition, argument was raised on the quantum of penalty.
B The COM PAT has, vi de common judgment dated October 29, 2013,
rejected all the contentions, except qua penalty, of the appellants. Insofar
as imposition of penalty is concerned, COMPAT has held that though
penalty@ 9% of three years' average turnover was not unreasonable,
the penalty cannot be on the 'total turnover· of these establishments,
and has to be restricted to 9% of the 'relevant turnover', i.e. the turnover
c in respect of the quantum of supplies made qua the product for which
cartel was formed and supplies made. In other words, it had to relate to
the goods in question, namely, APT and turnover of other products
manufactured and sold by the establishments. which were without blemish,
could not be included for calculating the penalty.
D 7. As noted above, before us, three appeals are filed by these
manufacturers/suppliers against the findings of the COM PAT holding
that there was violation of Sections 3(3)(a), 3(3)(b) and 3(3)(d) of the
Act on the part of the appellants. On that basis. it is pleaded that those
findings be declared as untenable and penalty imposed be set aside. On
·E the other hand, the CCI has also preferred Civil Appeal Nos. 53-55 of
20 l 4 against that part of the impugned order whereby penalty imposed
upon these suppliers is restricted to 'relevant turnover· instead of 'total
turnover'. Since submissions before us remain substantially the same.
we are not pointing out the reasons given by the COM PAT which weighed
with it after taking the aforesaid course of action, inasmuch as, while
F discussing the submissions of the parties, we shall be referring to the
reasons adopted by the COMPAT.
8. Having painted the canvas with seminal and essential facts, it
becomes manifest that following issues arise for consideration in these
appeals:
G
(i) Whether the dispute regarding violation of Section 3 of the
Act by the appellants could not be gone into in respect of tender
of March, 2009, as Section 3 was operationalised only by
notification dated 20'11 May, 2009?
(ii) Whether CCI was barred from investigating the matter
H
 EXCEL CROP CARE LIMITED v. COMPETITION 925
COMMISSION OF INDIA [A. K. SIKRI, J.]

pertaining to the tender floated by FCI in March, 2011 because of A

the reason that FCI in its complaint dated 4•h F ebrnary, 2011 given
to the CCI had not complained about this tender?
(iii) Whether, on the facts of the case, conclusion of CCI that the
appellants had entered into an agreement/arrangement and
pursuant thereto indulged in collusive bidding by fo1ming a cartel, B
resulting into contravention of Section 3(3)(a), 3(3)(b) and 3(3)(d)
read with Section 3( 1) of the Act, is justified9
(iv) Whether penalty under Section 27(b) of the Act has to be on
total/entire turnover of the offending company or it can be only on
"relevant turnover", i.e., relating to the product in question? c
9. First two issues are in the nature of preliminary objections
that were raised by the appellants, which are jurisdictional issues as the
attempt of the appellants is to show that CCI was not even empowered
to look into the merits of the case because of those objections. Therefore,
in the first instance, we deal with these issues. D
10. Issue No. 1
Re: Applicability of Section 3 of the Act in respect of Notice
Inviting Tender (NIT) dated 28 11 ' March, 2009
Section 3 is the first provision in Chapter II of the Act. Chapter II
E
is titled as "Prohibition of certain agreements, abuse of dominant position
and regulation of combinations". It sta1ts by specifying those agreements
which are prohibited under this Chapter and Section 3 enumerates such
prohibitive agreements. It reads as under:
"3. (!)No enterprise or association of enterprises or person or
E
association of persons shall enter into any agreement in respect
of production, supply, distribution, storage, acquisition or control
of goods or provision of services, which causes or is likely to
cause an appreciable adverse effect on competition within India.
(2) Any agreement entered into in contravention of the provisions
contained in subsection ( 1) shall be void. G

(3) Any agreement entered into between enterprises or

associations of enterprises or persons or associations of persons
or between any person and enterprise or practice carried on, or
decision taken by, any association of enterprises or association
H
926 SUPREME COURT REPORTS [2017] 5 S.C.R.

A of persons, including cartels, engaged in identical or similar trade

of goods or provision of services, which-
(a) directly or indirectly determines purchase or sale prices;
(b) limits or controls production, supply, markets, technical
development, investment or provision of services;
B
(c) shares the market or source of production or provision of
services by way of allocation of geographical area of market, or
type of goods or services, or number of customers in the market
or any other similar way;
C (d) directly or indirectly results in bid rigging or collusive bidding,
shall be presumed to have an appreciable adverse effect on
competition: Provided that nothing contained in this sub-section ·
shall apply to any agreement entered into by way ofjoint ventures
if such agreement increases efficiency in production, supply,
distribution, storage, acquisition or control of goods or provision
D of services.
Explanation.-Forthe purposes of this sub-section, "bid rigging"
means any agreement, between enterprises or persons referred
to in sub-section (3) engaged in identical or similar production or
trading of goods or provision of services, which has the effect of
E eliminating or reducing competition for bids or adversely affecting
or manipulating the process for bidding
(4) Any agreement amongst enterprises or persons at different
stages or levels of the production chain in different markets, in
respect of production, supply, distribution, storage, sale or price
F of, or trade in goods or provision of services, including-
(a) tie-in arrangement;
(b) exclusive supply agreement;
(c) exclusive distribution agreement;
G (d) refusal to deal;
(e) resale price maintenance,
shall be an agreement in contravention of sub-section (I) if such
agreement causes or is likely to cause an appreciable adverse
effect on competition in India.
H
EXCEL CROP CARE LIMITED v. COMPETITION 927
COMMISSION OF INDIA [A. K. SIKRI, J.]

Explanation.-For the purposes of this sub-section,- A

(a) "tie-in arrangement" includes any agreement requiring a
purchaser of goods, as a condition of such purchase, to purchase
some other goods;
(b) "exclusive supply agreement" includes any agreement
restricting in any manner the purchaser in the course of his trade B
from acquiring or otherwise dealing in any goods other than those
of the seller or any other person;
(c) "exclusive distribution agreement" includes any agreement
to limit, restrict or withhold the output or supply of any goods or .
allocate any area or market for the disposal or sale of the goods; C
(d) "refusal to deal" includes any agreement which restricts, or
is likely to restrict, by any method the persons or classes of
persons to whom goods are sold or from whom goods are bought;
(e) "resale price maintenance" includes any agreement to sell D
goods on condition that the prices to be charged on the resale by
the purchaser shall be the prices stipulated by the seller unless it
is clearly stated that prices lower than those prices may be
charged.
(5) Nothing contained in this section shall restrict-
E
(i) the right of any person to restrain any infringement of, or to
impose reasonable conditions, as may be necessary for protecting
any of his rights which have been or may be conferred upon him
under-
(a) the Copyright Act, 1957 (14of1957); F
(b) the Patents Act, 1970 (39 of1970);
(c) the Trade and Merchandise Marks Act, 1958 (43of1958) or
the Trade Marks Act, 1999 (47of1999);
(d) the Geographical Indications of Goods (Registration and G
Protection) Act, 1999 (48 of 1999); ·
( e) the Designs Act, 2000 ( 16 of 2000);
(f) the Semi-conductor Integrated Circuits Layout-Design Act,
2000 (37 of2000);
H
928 SUPREME COURT REPORTS [2017] 5 S.C.R.

A (ii) the right of any person to export goods from India to the
extent to which the agreement relates exclusively to the
production, supply, distribution or control of goods or provision of
services for such export."
11. At this juncture, it is the applicability of this Section which is
B dealt with. Though, the Competition Act is of the year 2002 and was
passed by the Legislature on 13 111 January, 2003, as per the provisions of
Section 1(3), the Act was to come into force from the date to be notified
by the Central Government in the Official Gazette. Notification was
issued by the Central Government wherein 31" March, 2003 was
specified as the appointed date. However, vide this notification, some of
c the provisions of the Act, and not all the provisions, were enforced.
Many other provisions came into force vide notification dated 19 11' June,
2003 and thereafter by notification dated 20 111 December, 2007 some
more provisions were notified. Insofar as Section 3 of the Act is
concerned, this provision along with many other provisions came into
D force on 20'11 May, 2009 vide S.0. 124l(E) dated 1S 1h May, 2009 on
which date the said notification was published in the Gazette oflndia as
well. Remaining provisions were notified by subsequent notifications.
It is, thus, a unique example where the entire Act was not enforced by
one single notification but different provisions of the Act were enforced
in bits and pieces by issuing various notifications over a span of time.
E
12. NIT in question was issued by FCI on 28 1h March, 2009. Last
date for submission of bids was 811t May, 2009. Few days thereafter,
i.e., on 2011t May, 2009, Section 3 of the Act was notified. It is on these
facts, the argument constructed by the appellants is that as on 811t May,
2009 when the appellants had submitted their bids, Section 3 of the Act
F was not in operation and, therefore, tender of March, 2009 could not be
the subject matter of inquiry by the CCL According to the appellants, if
this is allowed, it would amount to introducing the provisions of Section 3
of the Act retrospectively though the provision was introduced only
prospectively that is from the date of the notification.
G 13. The answer to the aforesaid argument given by Mr. Neeraj
Kaul, learned Additional Solicitor General appearing for the CCI, was
that the NIT in question did not come to an end with the submission of
bid on May 08, 2009. He pointed out that this bid was opened only on
June 01, 2009, on which date Section 3 of the Act had already been
H activated. Not only this, bidders, that is all the appellants, were called
 EXCEL CROP CARE LIMITED v. COMPETITION 929
COMMISSION OF INDIA [A. K. SIKRL J.]

for negotiations on June 17, 2009 and thereafter the award of work was A
given by placing requisite orders. He, thus, submitted that principle of
retroactivity is to be applied as the process of finalisation of the tender
was still on. For the applicability of doctrine ofretroactivity. Mr. Kaul
referred to Section 18 of the Act which casts duty upon the CC I to
examine adverse effect on the competition and enumerated following
B
factors for the applicability of this principle:
(i) Continuing effect of agreements/arrangement arrived at by
the appellants.
(ii) Negotiations with the appellants were held after the
promulgation of Section 3 of the Act. c
(iii) From 2007 to 2011, the rates quoted by the appellants/tenderers
were identical and in order to find out whether there was
cartelisation or not, studying of this entire trend became relevant.
In this continuing arrangement of cartalisation, period of 2009
and even thereafter gets included. D
(iv) Even boycott of201 l tender by all the appellants depicted
their common intention which was the result of arrangement/
agreement between them.
14. It is not in dispute that against this tender of 2009, all the
appellants had offered price of~388, even though their cost of production E
diffe~ed. The COMPAT, in the impugned order, has held that merely
because 81h May, 2009 was the last date for submitting the tender, that
would not be the end of the matter as that is not the relevant date for the
purpose of applicability of Section 3 when the tendering process
continued, as the appellants had participated in the said tender process
F
on I" June, 2009 when the price bids were opened and offered the
negotiated price on l 7'h June, 2009. This would mean that process of
bidding was still on which went well beyond the date of notifying
provisions of Section 3 of the Act. Relevant discussion in this behalf of
the COMPAT is as under:
G
'15 ... .In this behalf the CCI has also recorded a finding in
paragraph 7.13 that 8.5.2009 is not the crucial date but even
1.6.2009 and 17 .6.2009 are equally crucial. This discussion would
mean that the illegality of collusive bidding or rigging the bidding
which commenced on 8.5.2009 was continued thereafter on
1.6.2009 and 17.6.2009 also. The negotiation of prices with the H
930 SUPREME COURT REPORTS [2017] 5 S.C.R.

A lowest bidder, and in this case all the three appellants were the
lowest bidders, undoubtedly forms the part of the process of bid
rigging and cannot be seen separat€1y from the process of
bidding. For that matter the process ofbidding cannot be restricted
to only one date i.e. on 8.5.2009. We have seen in this behalf the
investigation report by the D.G. as also the finding arrived at by
B
the CCI which in our opinion is a correct finding. In this behalf it
cannot be ignored that all the three appellants were informed by
identical letters by the FCJ one of which is found in Appeal No.
80/2012 more particularly on pages 361-362. The letter is in the
following terms :-
c "Sub.: Tender Enquiry No. Pur-15(4)/2008 dated28.3.2009 for
supply of 600 MTs ± 10% Al. Phosphide conforming to BIS
Specification No. IS:6438-l 980 with up to date amendments,
Technical Bid opened on 08.05.09; Price Bid opened on
01.06.2009 and negotiation held on 17.06.09.
D Gentlemen,
Please refer to your offer letter No. UPLD : FCI:HQ : ALP :
VKJ : 09 dated 07 .05.2009 and letter of negotiated offer dated
17.06.2009 against the above mentioned tender enquiry.

E Your offer for supply (ALP( @ 386000/- per MT i.e.

Rs. 386/- per 18 kg net... is hereby accepted for a quiintity
of 200 MT ± 10% strictly as per the terms and conditions as
contained in the tender for including detailed NIT."
This letter thus clarifies and proves that all the three appellants
had given the offer at Rs.386/- per kg. which was identical offer
F
for all the three appellants. It is thus clear that the anti-competitive
agreement which commenced on 8.5.2009 continued thereafter
also and manifested itself in the post date, negotiations which
was the direct'fall out of the original identical offer and at which
the offer was reduced by the identical amotmts. Each of the
G appellant had the option of reducing the offer by a different
amount or not reducing the offer or not reducing the offer at all
and instead the three appellants chose to continue their anti-
competitive agreement right up to that date.

H
 EXCEL CROP CARE LIMITED v. COMPETITION 931
COMMISSION OF lNDIA [A. K. SIKRI, J.]

17. The term "process for bidding" used in the explanation in A

Section 3(3) would thus cover every stage from notice inviting
tender till the award of the contract and would also include all
the intermediate stages such as pre-bid clarification and bid
notifications also. Once this inference is reached on the basis of
the interpretation of Section 3(3) explanation there would be no B
question of dearth ofjurisdiction on the part of the CCI to firstly
order the investigation into the matter and also to inquire itself
into the complained illegality.'
15. The COMPAT has also noted that the anti-competitive conduct
of the appellants was not limited to the 2009 tender alone. It had
considered tender dated November 03, 2009 floated by the U.P. State C
Warehousing Corporation, tender dated July 13, 2010 of the Central
Warehousing Corporation, tender dated July 15, 2010 of the M.P. State
Warehousing Corporation, and tender dated February 14, 2011 of the
Punjab State Cooperative SS & Marketing Federation and found that
even against these tenders the appellants had quoted identical prices. D
Keeping in view the said pattern of quotation, the COMPAT opined that
notwithstanding any objection of the appellants premised on retrospective
application of Section 3, the anti-competitive conduct of APT
manufacturers, i.e. the appellants, continued right up to the year 2011,
much after Section 3 of the Act had come into force. Therefore, even if
2009 tender was to be completely ignored, the provisions of the Act E
would nevertheless be attracted in the instant case.
We are in complete agreement with the aforesaid view taken by
the COMPAT. We are also of the firm view that provisions of Section 3
are applicable to 2009 tender as well.
F
16. Chapter II of the Act deals with three kinds of practices which
are treated as anti-competitive and prohibited. These are:
(a) where agreements are entered into by certain persons with
a view to cause an appreciable adverse effect on competition;
(b) where any enterprise or group of enterprises, which enjoys G
dominant position, abuses the said dominant position; and
(c) regulating the combination of enterprises by means of mergers
or amalgamations to ensure that such mergers or
amalgamations do not become anti-competitive or abuse the
dominant position which they can attain. H
932 SUPREME COURT REPORTS [2017] S S.C.R.

A 17. In the instant case, we are concerned with the first type of
practices, namely, anti-competitive agreements. The Act, which prohibits
anti-competitive agreements, has a laudable purpose behind it. It is to
ensure that there is a healthy competition in the market, as it brings
about various benefits for the public at large as well as economy of the
nation. In fact, the ultimate goal of competition policy (or for that matter,
B
even the consumer policies) is to enhance consumer well-being. These
policies are directed at ensuring that markets function effectively.
Competition policy towards the supply side of the market aims to ensure
that consumers have adequate and affordable choices. Another purpose
in curbing anti-competitive agreements is to ensure' level playing field'
c for all market players that helps markets to be competitive. It sets 'rules
of the game' that protect the competition process itself, rather than
competitors in the market. In this way, the pursuit of fair and effective
competition can contJibute to improvements in economic efficiency,
economic growth and development of consumer welfare. How these
benefits accrue is explained in ASEAN Regional Guidelines on
D
Competition Policy, in the following manner:
""2.2 Main Objectives and Benefits of Competition Policy
2.2.1.1 Economic efficiency: Economic efficiency refers to the
effective use and allocation of the economy's resources.
E Competition tends to bring about enhanced efficiency, in both a
static and a dynamic sense, by disciplining firms to produce at
the lowest possible cost and pass these cost savings on to
consumers, and motivating firms to undertake research and
development to meet customer needs.

F 2.2.1.2 Economic growth and development: Economic growth-

the increase in the value of goods and services produced by an
economy-is a key indicator of economic development. Economic
development refers to a broader definition of an economy's well-
being, including employment growth, literacy and mortality rates
and other measures of quality of life. Competition may bring
G about greater economic growth and development through
improvements in economic efficiency and the reduction of
wastage in the production of goods and services. The market is
therefore able to more rapidly reallocate resources, improve
productivity and attain a higher level of economic growth. Over
H
 EXCEL CROP CARE LIMITED v. COMPETTTTON 933
COMMISSION OF INDIA [A. K. SIKRI, J.]

time, sustained economic growth tends to lead to an enhanced A

quality oflife and greater economic development.
2.2.1.3 Consumer Welfare: Competition policy contributes to
economic growth to the ultimate benefit of consumers, in terms
of better choice (new products), better quality and lower prices.
Consumer welfare protection may be required in order to redress B
a perceived imbalance between the market power of consumers
and producers. The imbalance between consumers and producers
may stem from market failures such as information asymmetries,
the lack of bargaining position towards producers and high
transaction costs. Competition policy may serve as a complement
to consumer protection policies to address such market failures."
c
18. The aforesaid guidelines also spell out few more benefits of
such laws incorporating competition policies by highlighting the following
advantages:
"2.2.2 In addition, competition policy is also beneficial to D
developing countries. Due to worldwide deregulation, privatisation
and liberalisation of markets, developing countries need a
competition policy, in order to monitor and control the growing
role of the private sector in the economy so as to ensure that
public monopolies are not simply replaced by private monopolies.
E
2.2.3 Besides contributing to trade and investment policies,
competition policy can accommodate other policy objectives (both
economic and social) such as the integration of national markets
and promotion of regional integration, the promotion or protection
of small businesses, the promotion of technological advancement,
the promotion of product and process innovation, the promotion F
of industrial diversification, environment protection, fighting
inflation, job creation, equal treatment of workers according to
race and gender or. the promotion of welfare o.f particular
consumer groups.
In particular, competition policy may have a positive impact on G
employment policies, reducing redundant employment (which
often results from inefficiencies generated by large incumbents
and from the fact that more dynamic enterprises are prevented
from entering the market) and favouring jobs creation by new
efficient competitors.
H
934 SUPREME COURT REPORTS [2017] 5 S.C.R.

A 2.2.4 Competition policy complements trade policy, industrial

policy and regulatory reform. Competition policy targets business
conduct that limits market access and which reduces actual and
potential competition, while trade and industrial policies encourage
adjustment to the trade and industrial structures in order to
promote productivity-based growth and regulatory reform
B
eliminates domestic regulation that restricts entry and exit in the
markets. Effective competition policy can also increase investor
confidence and prevent the benefits of trade from being lost
through anticompetitive practices. In this way, competition policy
can be an important factor in enhancing the attractiveness of an
c economy to foreign direct investment, and in maximizing the
benefits of foreign investment."
19. In fact, there is broad empirical evidence supporting the
proposition that competition is beneficial for the economy. Economists
agree that it has an important role to play in improving productivity and,
D therefore, the growth prospects of an economy. It is achieved in the
following manner:
"International Competition Network - Economic Growth
and Productivity:
Competition contributes to increased productivity through:
E
Pressure on firms to control costs. In a competitive environment,
films must constantly strive to lower their production costs so
that they can charge competitive prices, and they must also
improve their goods and services so that they correspond to
consumer demands.
F
Easy market ently and exit. Entry and exit of firms reallocates
resources from less to more efficient firms. Overall productivity
increases when an entrant is more efficient than the average
incumbent and when an exiting firm is less efficient than the
average incumbent. Entry- and the threat of entry-incentivizes
G firms to continuously improve in order not to lose market share
to or be forced out of the market by new entrants.
E11co11ragi11g innovation. Innovation acts as a strong driver of
economic growth through the introduction of new or substantially
improved products or services and the development of new and
H improved processes that lower the cost and increase the efficiency
 EXCEL CROP CARE LIMITED v. COMPETITION 935
COMMISSION OF INDIA [A. K. SIKRI, J.]

of production. Incentives to innovate are affected by the degree A

and type of competition in a market.
Pressure to Improve Infrastructure. Competition puts pressure
on communities to keep local producers competitive by improving
roads, bridges, docks, airpo11s, and communications, as wdl as
improving educational opportunities. B
Benchmarking. Competition also can contribute to increased
productivity by creating the possibility of benchmarking. The
productivity of a monopolist cannot be measured against rivals
in the same geographic market, but a dose of competition quickly
will expose inferior performance. A monopolist may be content c
with mediocre productivity but a firm battling in a competitive
market cannot afford to fall behind, especially ifthe investment
community is benchmarking it against its rivals."
Productivity is increased through competition by putting pressure
on firms to control costs as the producers strive to lower their production D
costs so that they can charge competitive prices. It also improves the
quality of their goods and services so that they correspond to consumers'
demands.
Competition law enforcement deals with anti-competitive practices
arising from the acquisition or exercise of undue market power by firms E
that result in consumer harm in the forms of higher prices, lower quality,
limited choices and lack of innovation. Enforcement provides remedies
to avoid situations that will lead to decreased competition in markets.
Effective enforcement is important not only to sanction anti-competitive
conduct but also to deter future anti-competitive practices.
F
20. When we recognise that competition has number of benefits,
it clearly follows that cartels or anti-competitive agreements cause harm
to consumers by fixing prices, limiting outputs or allocating markets.
Effective enforcement against such practices has direct visible effects
in terms of reduced prices in the market and this is also supported by
various empirical studies. G
21. Keeping in view the aforesaid objectives that need to be
achieved, Indian Parliament enacted Competition Act, 2002. Need to
have such a law became all the more important in the wake of
liberalisation and privatisation as it was found that the law prevailing at
that time, namely, Monopolistic Restrictive Trade Practices Act, 1969 H
936 SUPREME COURT REPORTS [2017] 5 S.C.R.

A was not equipped adequately enough to tackle the competition aspects

of the Indian economy. The law enforcement agencies, which include
CCI and COMPAT, have to ensure that these objectives are fulfilled by
curbing anti-competitive agreements.
22. Once the aforesaid purpose sought to be achieved is kept in
B mind, and the same is applied to the facts of this case after finding that
the anti-competitive conduct of the appellants continued after coming
into force of provisions of Section 3 of the Act as well, the argument
predicated on retrospectivity pales into insignificance.
One has to keep in mind the aforesaid objective which the
c legislation in question attempts to sub-serve and the mischief which it
seeks to remedy. As pointed out above, Section 18 of the Act casts an
obligation on the CCI to 'eliminate' anti-competitive practices and
promote competition, interests of the consumers and free trade. It was
rightly pointed out by Mr. Neeraj Kishan Kaul, the learned Additional
Solicitor General, that the Act is clearly aimed at addressing the evils
D affecting the economic landscape of the countly in which interest of the
society and consumers at large is directly involved. This is so eloquently
emphasised by this Court in Competition Co111111issio11 oflndia v. Steel
Authority ofIndia Limited & Am: 1 in the following manner:
"6. As far as the objectives of competition laws are concerned,
E they vary from country to countly and even within a country
they seem to change and evolve over the time. However, it will
be useful to refer to some of the common objectives of competition
law. The main objective of competition law is to promote economic
efficiency using competition as one of the means of assisting the
F creation of market responsive to consumer preferences. The
advantages of perfect competition are threefold: allocative
efficiency, which ensures the effective allocation of resoui·ces,
productive efficiency, which ensures that costs of production
are kept at a minimum and dynamic efficiency, which promotes
innovative practices. These factors by and large have been
G accepted all over the world as the guiding principles for effective
implementation of competition law.
xx xx JG\:

I (2010) IOSCC744
H
EXCEL CROP CARE LIMITED v. COMPETITION 937
COMMISSION OF INDIA [A. K. SIKRI, J.]

8. The Bill sought to ensure fair competition in India by prohibiting A

trade practices which cause appreciable adverse effect on the
competition in market within India and for this purpose
establishment of a quasi-judicial body was considered essential.
The other object was to curb the negative aspects of competition
through such a body, namely, "the Competition Commission of B
India" (for short "the Commission") which has the power to
perform different kinds of functions, including passing of interim
orders and even awarding compensation and imposing penalty.
The Director General appointed under Section 16( 1) of the Act
is a specialised investigating wing of the Commission. In short,
the establishment of the Commission and enactment of the Act C
was aimed at preventing practices having adverse effect on
competition, to protect the interest of the consumer and to ensure
fair trade carried out by other participants in the market in India
and for matters connected therewith or incidental thereto.
9. The various provisions of the Act deal with the establishment, D
powers and functions as well as discharge of adjudicatory
functions by the Commission. Under the scheme of the Act, this
Commission is vested with inquisitorial, investigative, regulato1y,
adjudicatory and to a limited extent even advisory jurisdiction.
Vast powers have been given to the Commission to deal with the
complaints or infonnation leading to invocation of the provisions E
of Sections 3 and 4 read with Section 19 of the Act. In exercise
of the powers vested in it under Section 64, the Commission has
framed regulations called the Competition Co1mnission oflndia
(General) Regulations, 2009 (for short "the Regulations").
10. The Act and the Regulations framed thereunder clearly F
indicate the legislative intent of dealing with the matters related
to contravention of the Act, expeditiously and even in a time-
bound programme. Keeping in view the nature of the
controversies arising under the provisions of the Act and larger
public interest, the matters should be dealt with and taken to the G
logical end of pronouncement of final orders without any undue
delay. In the event of delay, the ve1y purpose and object of the
Act is likely to be fmstrated and the possibility of great damage
to the open market and resultantly, country's economy cannot
be ruled out.
H
938 SUPREME COURT REPORTS [2017] 5 S.C.R.

A xx xx xx
125. We have already noticed that the principal objects of the
Act, in terms of its Preamble and the Statement of Objects and
Reasons, are to eliminate practices having adverse effect on the
competition, to promote and sustain competition in the market, to
B protect the interest of the consumers and ensure freedom of
·trade carried on by the participants in the market, in view of the
economic developments in the country. In other words, the Act
requires not only protection of free trade but also protection of
consmner interest. The delay in disposal of cases, as well as
undue continuation of interim restraint orders, can adversely and
c prejudicially affect the free economy of the country. Efforts to
liberalise the Indian economy to bring it on a par with the best of
the economies in this era of globalisation would be jeopardised if
time-bound schedule and, in any case, expeditious disposal by
the Commission is not adhered to. The scheme of various
D provisions of the Act which we have already referred to including
Sections 26, 29, 30, 31, 53-B(5) and 53-T and Regulations 12,
15, 16, 22, 32, 48 and 31 clearly show the legislative intent to
ensure time-bound disposal of such matters." ·
23. Having regard to the aforesaid objective, we are of the opinion
E that merely because the purported agreement between the appellants
was entered into and bids submitted before May 20, 2009 are no yardstick
to put an end to the matter. No doubt, after the agreement, first sting
was inflicted on May 8, 2009 when the bids were submitted and there
was no provision like S. 3 on that date. However, the effect of the
arrangement continued even after May 20, 2009, with more stings, as a
F result of which the appellants bagged the contracts and fmits thereof
reaped by the appellants when Section 3 had come into force which
frowns upon such kinds of agreements.
24. We are, thus, of the opinion that inquiry into the tender of
March 2009 by the CCI is covered by Section 3 of the Act inasmuch as
G the tender process, though initiated prior to the date when Section 3
became operation, continued much beyond May 20, 2009, the date on
which the provisions of Section 3 of the Act were enforced. We agree .
with the COMPAT that the role of the appellants did not come to an end
with the submission of bid on May 08, 2009.
H
 EXCEL CROP CARE LIMITED v. COMPETITION 939
COMMISSION OF INDIA [A. K. SIKRI, J.]

25. in this behalf, it is to be emphasised again that merely by A

submitting the tenders, role of the appellants as tenderers had not come
to an end. As already pointed out, the DG in its report noted that FCI
resorted to global tender which had two-bid systems: techno-commercial
bid and financial bid. Those who qualified in techno-commercial process,
their financial bids were to be opened. The appellants had submitted
B
their bids on May 08, 2009, which was the last date for this purpose.
Bids were to be submitted by 2.00 pm on that day and were to be opened
at 3.00 pm on the same day. The committee of responsible officers for
evaluating the technical price bids was constituted. As per the practice,
the lowest bidder is invited by the committee for negotiations. And after
negotiations, the committee submits the report giving its recommendations c
on the basis of which contract is awarded. lfthere was variation in the
prices quoted by the appellants in their bids, things would have been
different. Then L-1 could have been called for negotiations. However,
all the three appellants quoted identical rates of~388/-. Because of this
reason all the appellants were LI and had to be called for negotiations.
D
Therefore, bidding process did not come to an end on May 08, 2009 as
argued by the appellants. It continued even thereafter when the appel Ian ts
appeared before the committee for negotiations, much beyond May 20,
2009 the date on which provisions of Section 3 of the Act were enforced.
· 26. In the aforesaid conspectus, principle of retroactivity woul-d
E
definitely apply. For this, we may usefully refer to the judgment of this
Court in R. Rajagopal Reddy (Dead) by LRs. & Ors. v. Padmiui
Chmulrasekhara11 (Dead) By LRs. 2 wherein it was held that merely
because an agreement relating to benami transaction was entered into
prior to the coming into force of the Benami Transactions (Prohibition)
Act, 1988, it would not mean that the provisions of the said Act would F
not apply retroactively to such an agreement and render it void. Likewise.
in Zile Singh v. State of Haryana & Ors. 3, this Court held that rule
against retrospectivity may not apply to a declaratory statute.
27. Following these judgments, the Bombay High Court has
described this very statute, with which we are dealing, to be retroactive G
in operation in Kingfisher Airlines v. Competition Commission of
India4. Following discussion from that judgment needs to be reproduced:
2 (1995) 2 sec 630

'(2004J s sec 1
'(2010) 4 Comp. LJ 557 (Born)
H
940 SUPREME COURT REPORTS [2017] 5 S.C.R.

A "8. Shri Seervai, the learned Senior Counsel, submits that the
very wording of Section 3 of the Act would make it clear that
the Act is prospective in nature. He submits that even a plain
reading of the provisions would go to show that. He contends
that the legislatme in its wisdom has not added any words in the
section to say that it would affect the agreement already entered
B
into. He submits that if it wanted to bring the agreement, prior to
coming into force of the Act, into its sweep, it would have and
could have said so in ve1y many words ....
xx xx xx

c The Act nowhere declares the agreement already entered into

as void. lfthe Section is read, it says that after coming into force
of the Act, no person shall enter into an agreement in
contravention of the provisions of the Act and if entered into,
same shall be void. This, to our mind, at the most, would mean
that the Act does not render the agreement entered into, prior to
D coming into force of the Act, void ab initio. Had the Act been
retrospective in operation, it would render the agreement void
ab initio. The agreement prior to coming into force of the new
act was, therefore, certainly valid, for it was not in breach of any
law or affected any law then existing. The question here is
E whether this agreement, which was valid until coming into force
of the Act, would continue to be so valid even after the operation
of the law. The parties as on today certain propose to act upon
that agreement. All acts done in pursuance of the agreement
before the Act came into force would be valid and cannot be
questioned. But if the parties want to perform certain things in
F pursuance of the agreement, which are now prohibited by law,
would certainly be an illegality and such an agreement by its
nature, therefore, would, from that time, be opposed to the public
policy. We would say that the Act could have been treated as
operating retrospectively, had the Act rendered the agreement
G void ab initio and would render anything done pursuant to it as
invalid. The Act does not say so. It is because the parties still
want to act upon the agreement even after coming into force of
the Act that difficulty arises. If the parties treat the agreement
as still continuing and subsisting even after coming illto force of

1-l
 EXCEL CROP CARE LTMTTED v. COMPETITION 941
COMMISSION OF INDIA [A. K. SIKRI, J.]

the Act, which prohibits an agreement of such nature, such an A

agreement cannot be said to be valid from the date of the coming
into force of the Act. If the law cannot be applied to the existing
agreement, the ve1y purpose of the implementation of the public
policy would be defeated. Any and eveiy person may set up an
agreement said to be entered into prior to the coming into force
B
of the Act and then claim immunity from the application of the
Act. Such thing would be absurd, illogical and illegal. The
moment the Act comes into force, it brings into its sweep all
existing agreements. This can be explained further by quoting
the following example:
"A and B enter into agreement of sale of land on 2/1/2008. It c
is agreed between them that sale-deed would be executed on
or before 2/1/2009. Meanwhile, i.e. on 10/8/2008, the
Government decides to impose a ban on transfer of the land
and declares that any such transfer, if effected, shall be void.
The question is, could the parties say that since their agreement D
being prior to Government putting a ban on transfer, their case
is not covered by the ban? The answer has to be in the negative,
as on the day the contract is sought to be completed, it is
prohibited."
Similar would be the result in the instant case." E
28. We approve the aforesaid view taken by the Bombay High
Court. It may be added that had the anti-competitive agreement between
the appellants been executed and completed in its entirety prior to May
20, 2009, i.e. nothing further was left to be done and all actions as
contemplated by the agreement had already been accomplished, it could F
perhaps be argued that the Act was not applicable to such an agreement
or actions taken pursuant to the agreement. However, that is not the
factual position in the instant case as the purported arrangement entered
into by the appellants continued to be acted upon even after May 20,
2009.
G
29. The COMPAT has referred to the explanation to Section
3(3)(d) also while arriving at the conclusion that May 08, 2009 cannot be
the dete1minative date on which the bid was submitted, as 'manipulating
the process of bidding' is also covered by virtue of the said explanation
and this process of bidding continued even after May 20, 2009.
H
942 SUPREME COURT REPORTS [2017] 5 S.C.R.

A 30. Learned counsel for the appellants submitted that this

explanation has no application as it referred only to 'bid rigging' which
is different from 'collusive bidding'. In an attempt to distinguish the
two expressions, it was argued that although the terms 'bid rigging' or
'collusive bidding' may, in certain contexts, overlap or even may be
referred to as 'synonyms', in certain context they may cover activities
8
which are not identical. 'Bid rigging' may cover larger and more varied
activities than 'collusive bidding'. It was submitted that in view of the
specific exclusion of 'collusive bidding' from the 'Explanation·. an
activity which squarely falls within the scope of 'collusive bidding'
would not be covered by the 'Explanation' and would be excluded from
c it. Submission is that since the allegation in the present case relating to
identical pricing or identical reduction in price squarely falls within the
term 'collusive pricing', the 'Explanation' has no relevance to the
present case.
31. Mr. Neeraj Kishan Kaul, learned Additional Solicitor General,
D refuted the aforesaid submission with vehemence by urging that bid
rigging and collusive bidding are not mutually exclusive and these are
overlapping concepts. Illustratively, he referred to the findings of the
CCI, as approved by the COMPAT, in the instant case itself to the effect
that the appellants herein had 'manipulated the process of bidding' on
the ground that bids were submitted on May 08, 2009 collusively, which
E was only the beginning of the anti-competitive agreement between the
parties and this continued through the opening of the price bids on June
0 I, 2009 and thereafter negotiations on June 17, 2009 when al I the parties
reduced their bids by same figure of~2 to bring their bid down to ~386
per kg. from ~388 per kg. From this example, he submitted that on May
F 08, 2009 there was a collusive bidding but with conce11ed negotiations
on June 17, 2009, in the continued process, it was rigging of the bid that
was practiced by the appellants.
We are inclined to agree with this pellucid submission of the learned
Additional Solicitor General.
G 32. Richard Whish and David Bailey5, in their book, have given
illustrations ofvarious fonns of collusive bidding/bid rigging. which include:
(a) Level tendering/bidding (i.e. bidding at same price - as in the
present case).

H 'Competition Law. 7th Edition. page 536

 EXCEL CROP CARE LIMITED v. COMPETITION 943
COMMISSION OF INDIA [A. K. SIKRI, J.]

(b) Cover bidding/courtesy bidding. A

( c) Bid rotation.
(d) BidAllocation.
33. Even internationally, 'collusive bidding' is not understood as
being different from 'bid rigging'. These two expressions have been B
used interchangeably in the following international commentaries/
glossaries and websites of competition authorities:
(a) UNCTAD Competition Glossary dated June 22, 2016
"Bid Rigging or Collusive Tendering is a manner in which
conspiring competitors may effectively raise prices where c
business contracts are awarded by means of soliciting
competitive bids. Essentially, it relates to a situation where
competitors agree in advance who will win the bid and at what
price, undermining the very purpose of inviting tenders which
is to procure goods or services on the most favourable prices
D
and conditions."
(b) OECD Glossary of Industrial Organisation Economics
& Competition Law.
"Bid rigging is a particular form of collusive price-fixing
behaviour by which firms coordinate their bids on procurement E
or project contracts. There are two common fonns of bid
rigging. In the first, firms agree to submit common bids, thus
eliminating price competition. In the second, firms agree on
which firm will be the lowest bidder and rotate in such a way
that each firm wins an agreed upon number or value of F
contracts.
Since most (but not all) contracts open to bidding involve
governments, it is they who are most often the target of bid
rigging. Bid rigging is one of the most widely prosecuted forn1s
of collusion."
G
Collusive bidding (tendering) - See Bid Rigging"
[This shows collusive bidding and bid rigging are treated as
one and the same]
(c) OECD Guidelines for fighting bid rigging
I-I
944 SUPREME COURT REPORTS [2017] 5 S.C.R.

A "Bid rigging (or collusive tendering) occurs when businesses,

that would othe1wise be expected to compete, secretly conspire
to raise prices or lower the quality of goods or services for
purchasers who wish to acquire products or services through
a bidding process."
B (d) United States ·office of the Inspector General,
Investigations (Fraud Indicators Handbook)
"Collusive bidding, price fixing or bid rigging, are commonly
used interchangeable terms which describe many forms of an
illegal anti-competitive activity. The common thread throughout
c all these activities is that they involve any agreements or informal
arrangements among independent competitors, which limit
competition. Agreements among competitors which violate
the law include but are not limited to:
( 1) Agreements to adhere to published price lists.
D (2) Agreements to raise prices by a specified increment.
(3) Agreements to establish, adhere to, or eliminate discounts.
(4)Agreements not to advertise prices.
(5) Agreements to maintain specified price differentials based
E on quantity, type or size of product."
(e) Australian Competition & Consumer Commission
"Bid rigging, also referred to as collusive tendering, occurs
when two or more competitors agree they will not compete
genuinely with each other for tenders, allowing one of the cartel
F members to 'win' the tender. Participants in a bid rigging cartel
may take turns to be the 'winner' by agreeing about the way
they submit tenders, including some competitors agreeing not
to tender."
34. As the Leigman of the law, it is our task, nay a duty, to give
G proper meaning and effect to the aforesaid 'Explanation': it can easily
be discussed that the Legislature had in mind that the two expressions
are inter-changeably used. It is also necessary to keep in mind the purport
behind Section 3 and the objective it seeks to achieve. Sub-section ( 1) of
Section 3 is couched in the negative terms which mandates that no
H enterprise or association of enterprises or person or association of persons
 EXCEL CROP CARE LlMlTED v. COMPETITION 945
COMMISSION OF INDIA [A. K. SIKRI, J.]

shall enter into any agreement, when such agreement is in respect of A

production, supply, distribution, storage, acquisitfon or control of goods
or provision of services and it causes or is likely to cause an appreciable
adverse effect on competition within India. lt can be discerned that first
part relates to the parties which are prohibited from entering into such
an agreement and embraces within it persons as well as enkrprises
8
thereby signifying its very wide coverage. This becomes manifest from
the reading of the definition of "enterprise" in Section 2(h) and that of
'person' in Section 2(1) of the Act. Second part relates to the subject
matter of the agreement. Again it is ve1y wide in its ambit and scope as
it covers production, supply, distribution, storage, acquisition or control
of goods or provision of services. Third part pertains to the effect of C
such an agreement, namely, 'appreciable adverse effect on competition',
and if this is the effect, purpose behind this provision is not to allow that.
Obvious purpose is to thwart any such agreements which are anti-
competitive in nature and this salubrious provision aims at ensuring healthy
competition. Sub-section (2) of Section 3 specifically makes such D
agreements as void. Sub-section (3) mentions certain kinds ofagreements
which would be treated as ipso facto causing appreciable adverse effect
on competition. It is in this backdrop and context that 'Explanation'
beneath sub-section (3), which uses the expression 'bid rigging', has
to be understood and given an appropriate meaning. It could never be
the intention of the Legislature to exclude 'collusive bidding' by E
construing the expression 'bidrigging'narrowly. No doubt, clause (d)
of sub-section (3) of Section 3 uses both the expressions 'bid rigging'
and 'collusive bidding', but the Explanation thereto refers to 'bid
rigging' only. However, it cannot be said that the intention was to exclude
'collusive bidding'. Even ifthe Explanation does contain the expression
F
'collusive bidding' specifically, while interpreting clause (d), it can be
. inferred that 'collusive bidding' relates to the process of bidding as
well. Keeping in mind the principle of purposive interpretation, we are
inclined to give this meaning to 'cof/usive bidding'. It is more so when
the expressions 'bid rigging' and 'collusive bidding· would be
overlapping, under ce1iain circumstances which was conceded by the G
learned counsel for the appellants as well.
We are, therefore, of the opinion that the two expressions are to
be interpreted using the principle of noscitur a sociis, i.e. when two or
more words which are susceptible to analogous meanings are coupled
together, the words can take colour from each other {See - Leelabai H
946 SUPREME COURT REPORTS [2017] 5 S.C.R.

A Gaja11a11 Pansare ~ Ors. v. Oriental /11sura11ce Company Limited

& Ors.•, 111akorlal D. Vadgama v. State of Gujarat 7, and M.K.
Ranga11atha11 v. Government of Madras & Ors. 8 }.
We, thus, answer Issue No. 1 in the negative by holding that the
CCI was well within its jurisdiction to hold an enqui1y under Section 3 of.
B the Act in respect of tender of March, 2009.
ISSUE N0.2
Re.: Jurisdiction of DG/CCI to investigate into the boycott of
2011 FCI's tender

c 35. The CCI had entrusted the task to DG after it received

representation/complaint from the FCI vide its communication dated
February 04, 2011. Argument of the appellants is that since this
communication did not mention about the 2011 tender of the FCI, which
was in fact even floated after the aforesaid communication, there could
not be any investigation in respect of this tender. It is more so when
D there was no specific direction in the CCI's order dated February 24,
2011 passed under Section 26( 1) of the Act and, therefore, the 2011
tender could not be the subject matter ofinquiry when it was not refened
to in the communication of the FCI or order of the CCI. The COMPAT
has rejected this contention holding that Section 26( 1) is wide enough to
E cover the investigation by the DG, with the following discussion:
"28. As per the sub-section ( 1) of Section 26, there can be no
doubt that the DG has the power to investigate only on the basis
of the order passed by the Commission under Section 26(1).
Our attention was also invited to sub-section (3) of Section 26
under which the Director-General, on receipt of direction under
F
sub-section (I) is to submit a report of its findings within such
period as may be specified by the Commission. The argument of
the parties is that if on the relevant date when the Commission
passed the order, even the tender notice was not floated, then
there was no question of Direction General going into the
G investigation of that tender. It must be noted at this juncture that
under Section 18, the Commission has the duty to eliminate

•(2008) 9 sec no
1
(1973) 2 sec 413
'(1955)2 SCR 374
H
EXCEL CROP CARE LIMITED v. COMPETITION 947
COMMISSION OF INDIA [A. K. SIKRI, J.]

practices having adverse effect on competition and to promote A

and sustain competition. It is also required to protect the interests
of the consumers. There can be no dispute about the proposition
that the Director General on his own cannot act and unlike the
Commission, the Director General has no suo-moto power to
investigate. That is clear from the language of Section 41 also,
B
28 which suggests that when directed by the Commission, the
Director General is to assist the Commission in investigating into
any contravention of the provisions of the Act. Our attention
was also invited to the Regulations and more particularly to
Regulation 20, which pertains to the investigation by the Director
General. Sub-regulation (4) of Section 20 was pressed into service c
by all the learned counsel, which is in the following term:-
"The report of the Director-General shall contain his findings
on each of the allegations made in the information or reference,
as the case may be, together with all evidences or documents
or statements or analyses collected during the investigation:" D
(proviso not necessary)
From this, the learned counsel argued that the Director General
could have seen into the tender floated on 08.05.2009 only, and
no other tender as the information did not contain any allegation
about the tender floated in 2011. Therefore, the investigation E
made into the tender floated in 2011 was outside the jurisdiction
of the Director General. This argument was more particularly
pressed into service, as the Director General as well as the
Competition Commission of India have found that all the
appellants had entered into an agreement to boycott the tender
floated in 20 I l and thereby had rigged the bids. F

29. We have absolutely no quarrel with the proposition that the

Director General must investigate according to the directions
given by the CCI under Section 26(1). There is also no quarrel
with the proposition that the Director General shall record his
findings on each of the allegations made 29 in the information. G
However, it does not mean that if the information is made by the
FCI on the basis of tender notice dated 08.05.2009, the
investigation shall be limited only to that tender. Everything would

H
948 SUPREME COURT REPORTS [2017] 5 S.C.R.

A depend upon the language of the order passed by the CCI on the
basis of information and the directions issued therein. If the
language of the order of Section 26(1) is considered, it is broad
enough. At this juncture, we must refer to the letter written by
Chairman and Managing Director ofFCI, providing information
to the CCI. The language of the letter is clear enough to show
B
that the complaint was not in respect of a particular event or a
particular tender. It was generally complained that appellants
had engaged themselves in carteling. The learned counsel Shri
Virmani as well as Shri Balaj i Subramanian are undoubtedly
correct in putting forth the argument that this information did not
c pertain to a particular tender, but it was generally complained
that the appellants had engaged in the anticompetitive behaviour.
When we consider the language of the order passed by the CCI
under Section 26( 1) dated 23.04.2012 the things becomes all the
more clear to us. The language of that order is clearly broad
enough to hold, that the Director General was empowered and
D
duty bound to look into all the facts till the investigation was
completed. If in the course of investigation, it came to the light
that the parties had boycotted the tender in 2011 withpre-
concerted agreement, there was no question of the DG not going
into it. We must view this on the background that when the
E information was led, the Commission had material only to form a
prima facie view. The said prima-facie view could not restrict
the Director General, if he was duty bound to carry out a
comprehensive investigation in keeping with the direction by CCI.
In fact the DG has also taken into 30 account the tenders by
some other corporations floated in 2010 and 2011 and we have
F
already held that the DG did nothing wrong in that. In our opinion,
therefore, the argument fails and must be rejected."
We entirely agree with the aforesaid view taken by the COMPAT.
36. lfthe contention of the appellants is accepted, it would render
G the entire purpose of investigation nugatory. The entire purpose of such
an investigation is to cover all necessary facts and evidence in order to
see as to whether there are any anti-competitive practices adopted by
the persons complained against. For this purpose, no doubt, the starting
point of inquiry would be the allegations contained in the complaint.

H
 EXCEL CROP CARE LIMITED v. COMPETITION 949
COMMISSION OF INDIA [A. K. SIKRI, J.]

However, while carrying out this investigation, if other facts also get A
revealed and are brought to light, revealing that the 'persons' or
'enterprises' had entered into an agreement that is prohibited by Section
3 which had appreciable adverse effect on the competition, the DG would
be well within his powers to include those as well in his report. Even
when the CCI forms prima.facie opinion on receipt of a complaint which
B
is recorded in the order passed under Section 26(1) of the Act and directs
the DG to conduct the investigation, at the said initial stage, it cannot
foresee and predict whether any violation of the Act would be found
upon investigation and what would be the nature of the violation revealed
through investigation. If the investigation process is to be restricted in
the manner projected by the appellants, it would defeat the very purpose c
of the Act which is to prevent practices having appreciable adverse
effect on the competition. We, therefore, reject this argument of the
appellants as well touching upon the jurisdiction of the DG.
ISSUE NO. 3:
RE.: MERITS D

37. lt is not in dispute that in respect of2009 tender of the FCI, all
the three appellants had quoted the same price, i.e. ' 3 88 per kg. for the
APT. The appellants have attempted to give their explanations and have
contended that it cannot be presumed that it was the result of any prior
agreement or arrangement between them. This aspect shall be taken E
note of and dealt with in detail later at the appropriate stage. Before
that, it needs to be highlighted that it is not only 2009 FCI tender in
respect of which DG found the violation. Pertinently, the investigation of
DG revealed that the appellants had been quoting such identical rates
much prior to and even after May 20, 2009. No doubt, in relation to F
tenders prior to 2009, it cannot be said that there was any violation of
law by the appellants. However, prior practice definitely throws light on
the formation of cartelisation by the appellants, thereby making it easier
to understand the events of 2009 tender. Therefore, to take a holistic
view of the matter, it would be essential to point out that the DG in his
report had tabulated this tendency of quoting identical rates by these G
parties in respect of various tenders issued by even other Government
bodies before and after 2009. The statistics in this behalf, given in
tabulated form by the DG, are reproduced below:

H
950 SUPREME COURT REPORTS [2017] 5 S.C.R.

A Tender Rates tmoted (Rs. Per kl!.)

Tendering
S.No. Opening
Agen<.y Excel United Sandhya Agro
Date
U.P. State
I. 'Mlrehousing 14/03/2007 225 225 - -
Coro.
Punjab State
B 2. Civil Supplies 28/04/2008 260 260 - -
Com.
Central
3. 'Mlrehousing 0610812008 450 - 450 -
Coro.
U.P. State
4. 'Mlrehousing 19/09/2008 449 449 - -
c Com.
Punjab State Co-
5. op SS &Mktg. 26/12/2008 419 419 - -
Fed.
Central
6. 'Mlrehousing 06/0112009 414 414 - -
Com.
D Punjab State
7. Civil Supplies 27/02/2009 409 409 - -
Coro.
Food
8. Corporation of 08/05/2009 388 388 388 -
India
Punjab State
E 9. Civil Supplies 1510612009 399 - - 399
Coron.
U.P. State
JO.
'Mlrehousing
03/ll/2009 399 399 - -
Dire<.ior, SS &
l l. Disposal, 0111212009 - - 399 399
Harvana
F Punjab State
12. Civil Supplies 18/03/2010 419 - - 410
Corp.
Central
13. 'Mlrehousing 13/07/2010 421 421 421 -
Com.
M.P. State
G 14. Wire ho using 15/07/2010 436 - 436 -
Com.
Punjab State Co-
15. op SS &Mktg. 14/02/2011 415 415 - -
Fed.
Punjab State
16. Civil Supplies 15/03/2011 - 415 - 415
H Corp.
 EXCEL CROP CARE LIMITED v. COMPETITION 951
COMMISSION OF INDIA [A. K. SlKRl, J.]

38. The aforesaid table shows identical pricing by these parties A

even in respect of tenders floated by the U.P. State Warehousing
Corporation and Punjab State Civil Supplies Corporation. It was repeated
in respect of2008 tender floated by the Central Warehousing Corporation.
Tenders up to S.No.7 above, no doubt, relate to the period which is
earlier to coming into force of the provisions of Section 3. At S.No. 8 is
B
the tender of the FCl of March, 2009, which is held to be covered on the
principle of retroactivity, as already held above. However, insofar as
tenders mentioned at S.Nos. 9 to 16 are concerned, they all pertain to
the period after Section 3 became operational. These are clear cut
examples of identical pricing by the three appellants. No doubt, the
appellants cannot be penalised in respect of tenders mentioned at S.Nos. c
1 to 7 as there was no provision like Section 3 at that time. However,
such illustrations become important in finding out the mens rea of the
appellants, i.e. atTiving at an agreement to enter into collusive bidding
which continued with impunity right up to 2011. Further, this trend of
quoting identical price in respect of so many tenders, not only of FCI but
D
other Government bodies as well, is sufficient to negate all explanations
given by the appellants taking the pretext of coincidence or economic
forces.
39. We may record here the submission of Mr. Krishnan
Venugopal, learned senior counsel appearing for M/s. Excel Crop Care
Limited, that the APT pesticide is needed only by the FCI and the Central E
Warehousing Corporation or the Central and State Warehousing
Corporations and it creates a monopoly situation where buyer is in a
dominant position. There are only four suppliers who are given' MFN'
status, but since the supply is only to the aforesaid Government agencies,
the supplier is entirely dependent up.1n these parties for supplies. It creates F
oligopoly market. It was argued tha1 since dominant position is enjoyed
by the buyer, it leads to parallel pric1.11g and this conscious parallelism
takes place leading to quoting the same price by the suppliers., The
explanation, thus, given for quoting identical price was the aforesaid
economic forces and not because of at1y agreement or arrangement
between the parties. It was submitted that merely because san-:e price G
was quoted by the appellants in respect of the 2009 FCI tender, one
could not jump to the conclusion that there was some 'agreement' as
well between these parties, in the absence of any other evidence
corroborating the said factum of quoting identical pdce. In respect of
this submission, Mr. Venugopal had also referred few judgments. H
952 SUPREME COURT REPORTS [2017] 5 S.C.R.

A 40. The aforesaid argument is highly misconceived. A neat and

pellucid reply of Mr. Kaul, which commands acceptance, is that argument
of parallelism is not applicable in bid cases and it fits in the realm of
market economy. lt is for this reason the entire history of quoting identical
price before coming into operation of Section 3 and which continued
much after Section 3 of the Act was enforced has been highlighted.
B
There cannot be coincidence to such an extent that almost on all occasions
price quoted by the three appellants is identical, not even few paisa
more or less from each other. That too, when the cost stmcture, i.e.
cost of production of this product, of the three appellants sharply varies
\Vi th each other. Following factors in this behalf need to be highlighted:
c (a) there is a 10 years' history of quoting identical prices;
(b) there are only four suppliers of the product in the market
out of which three are the appellants;
(c) even when the cost of production is different, they have
quoted identical price;
D
(d) even when the geographical location of the three suppliers
is different, strange coincidence of identical pricing is found,
that too repeatedly;
(e) profit margins would be different, still quotations are same;
and
E (f) to different parties in respect of different tenders, different
rates are quoted. Still whatever price is quoted in respect
of one particular tender, that is identical. It would be too
much of a coincidence, difficult to believe.
Thus, onus was on the appellants in view of Section 3 of the Act,
F and that too heavy onus, to justify the above trend, but they have failed
to discharge this burden. We are, therefore, ofthe opinion that ingredients
of Section 3 stand satisfied and the CCI right! y held that provisions of
Section 3(3)(a), 3(3)(b) and 3(3)(d) have been contravened by the
appellants.
G 41. 1t needs to be emphasised that collusive tendering is a practice
whereby films agree amongst themselves to collaborate over their
response to invitations to tender. Main purpose for such collusive
tendering is the need to concert their bargaining power, though, such a
collusive tendering has other benefits apart from the fact that it can lead
to higher prices. Motive may be that fewer contractors actually bother
H
 EXCEL CROP CARE LIMITED v. COMPETITION 953
COMMISSION OF INDIA [A. K. SIKRI, J.]

to price any particular deal so that overheads are kept lower. It may A
also be for the reason that a contractor can make a tender which it
knows will not be accepted (because it has been agreed that another
firm will tender at a lower price) and yet it indicates that the said
contractor is still interested in doing business, so that it will not be deleted
from the tenderee's list. It may also mean that a contractor can retain
B
the business of its established, favoured customers without worrying
that they will be poached by its competitors.
42. Collusive tendering takes many forms. Simplest form is to
agree to quote identical prices with the hope that all will receive their
fair share of orders. That is what has happened in the present case.
However, since such a conduct becomes suspicious and would easily
c
attract the attention of the competition authorities, more subtle
arrangements of different forms are also made between colluding parties.
One system which has been noticed by certain competition authorities in
other countries is to notify intended quotes to each other, or more likely
to a central secretariat, which will then cost the order and eliminate D
those quotes that it considers would result in a loss to some or all members
of the cartel. Another system, which has come to light, is to rotate
orders. In such a case, the firm whose turn is to receive an order will
ensure that its quote is lower than the quotes of others.
43. We are here concerned with parallel behaviour. We are E
conscious of the argument put forth by Mr. Venugopal that in an oligopoly
situation parallel behaviour may not, by itself, amount to a concerted
practice. It would be apposite to take note of the following observations
made by U.K. Court of Justice in Dyestuffs 9 :
"By its very nature, then, the concerted practice does not have F
all the elements of a contract but may inter alia arise out of
coordination which becomes apparent from the behaviour of the
participants. Although parallel behaviour may not itse(f if
identified with a concerted practice, it may however amount
to strong evidence of such a practice if it leads to conditions of
competition which do not respond to the normal conditions of the G
market, having regard to the nature of the products, the size and
number of the undertakings, and the volume of the said market.
Such is the case especially where the parallel behaviour is such
as to permit the parties to seek price equilibrium at a different
' {l 972) ECR 619 H
954 SUPREME COURT REPORTS [2017) 5 S.C.R.

A level from that which would have resulted from competition, and
to crystallise the status quo to the detriment of effective freedom
of movement of the products in the [internal] market and free
choice by consumers of their suppliers (emphasis added).
At the same time, the Court also added that the existence of a
B concerted practice could be appraised correctly by keeping in mind the
following test:
"If the evidence upon which the contested decision is based is
considered, not in isolation, but as a whole, account being taken
of the specific features of the products in question."
c 44. It would be significant to note that in Dyestuffs' judb>rnent, the
Court rejected the argument predicated on Oligopolistic market structure,
after finding that the market is not a pure oligopoly: rather it was one in
which firms could realistically be expected to adopt their own pricing
strategies, particularly, in view of the compartmentalisation of the markets
D along national boundaries. In the instant case, argument of oligopoly
market was not even raised either before the CCI or COMPAT.
Moreover, with the eloquent facts, mentioned above, staring at the
appellants, we do not agree with the arguments put forth by Mr.
Venugopal.
E 45. At this juncture, we would advert to tender of May, 2011. It is
not in dispute that all the three appellants, as well as Mis. Agrosynth
Chemicals Limited did not participate in the said tender. These are the
four manufacturers in all. When this fact is not in dispute, the only
question is as to whether it was a concerted action on the part of the
appellants herein. According to all the appellants, their decision not to
F participate in the aforesaid bid was the onerous, unreasonable, arbitrary
and ~nquestionable conditions that were put in the said tender. As these
were not acceptable to them, they individually decided not to take part in
the tender, which was a valid business decision and not result of pre-
concerted agreement of the appellants.
G 46. The conditions which are perceived as 'onerous' by these
appellants are the following:
(a) Earnest money deposit was raised from '10 lakhs to '30
lakhs.
(b) Supply required as per this standard was 75 MT per month
H
 EXCEL CROP CARE LIMITED v. COMPETITION 955
COMMISSION OF INDIA [A. K. SIKRI, J.]

which was too high a demand/requirement and it was difficult to A

effect supplies of this magnitude eve1y month.
Mis. Sandhya Organics Chemicals (P) Ltd. additionally submitted
that they had placed on record that their production capacity was much
less and supplying 75 MT of APT every month was beyond their means.
Therefore, they were unable to tender against the said NIT. Before the B
COMPAT, Mis. Excel Crop Care Limited attempted to project their
bonafides by showing that they had even written letter dated May 26,
2011 to the FCI conveying their inability to take part in that tender.
47. The COMPAT, after discussing the matter, arrived at the
conclusion that it was clearly an after-thought move, inasmuch as the c
tender was published on April 28, 20I1 and the last date for submitting
the price bids was May 27, 2011, but only a day before i.e. on May 26,
2011, such a letter was sent by Mis. Excel Crop Care Limited to the
FCI. Insofar as Mis. UPL is concerned, it did not even bother to give
any representation. Likewise, Mis. Sandhya Organics did not approach
the FCI at all with the representation that the quantities to be supplied D
were huge and the tender conditions be suitably modified.
48. We feel that COMPAT has examined the matter in right
perspective. After examining the record, one finds that important
fundamental conditions were the same which used to be in the earlier
tenders. In 2009 tender, a specific quantity of 600 MT was prescribed. E
At that time, all the three appellants participated and did not object to the
same. As against this in 2011 tender, the tentative annual requirement of
APT was stated to be 400 MT and not 75 MT per month. The condition
referred to by the appellants was not for supply of75 MT per month. It
only stated that in a given month the tenderer should have capacity to F
supply75 MT. It was nowhere stated that 75 MT will have to be supplied
by the successful tenderer every month. In any case, from the conduct
of the three appellants, it becomes manifest that reason to boycott the
May 20 I I tender was not the purported onerous conditions, but it was a
concerted action. Otherwise, ifthe appellants were genuinely interested
in participating in the said tender and were aggrieved by the aforesaid G
conditions, they could have taken up the matter with the FCI well in
time. They, therefore, could request the FCI to drop the same (in fact
FCI dropped these conditions afterwards when the matter was brought
to their notice). However, no such effort was made. As pointed out
above, Mis. Excel Crop Care wrote the letter only a day before, just to H
956 SUPREME COURT REPORTS [2017) 5 S.C.R.

A create the record which cannot be termed as a bona fide move on its
part. UPL did not even make any such representation in writing.
Likewise, Mis. Sandhya Organics Chemicals (P) Ltd. would not have
liked itself to be rendered disqualified and silently swallowed this situation.
After all, it would have liked to remain a supplier of APT to FCI having
regard to the fact that the said product is consumed by handful of
B
Government sector undertakings. Therefore, not making any sincere
effort in this behalf by any of the appellants clearly shows that they
were in hand in glove in taking a decision not to bid against this tender.
This conclusion gets strengthened by the fact that these are the only
four suppliers (including three appellants) in the market for this product.
c Reaction of not participating in the said tender by four suppliers could
have been perceived otherwise, had there been a number of
manufacturers in the market and four out of them abstaining. Abstention
by hundred percent (who are only four) makes the things quite obvious.
Events get quite apparent when examined along with past history of
quoting identical prices, an aspect already commented above.
D
49. Since collusion stands proved by the aforesaid conduct of the
appellants in abstaining from the bidding in respect of May 2011 tender,
requirement of Section 3(3)(d) of the Act read with 'explanation' thereto
stands satisfied, viz., concerted action based on an agreement/
arrangement between the appellants, resulted in restricting or manipulating
E competition or process of bidding, since the said act was collusive in
nature.
50. We, therefore, agree with the conclusions of the COMPAT
on this aspect as well.
F 51. Issue No. 4
Re: Penalty
After giving its finding that there was a contravention of the
provisions of Section 3 of the Act by the appellants, the CCI imposed the
following penalties on the three entities/ appellants:
G
Name of the finns Average of three )'ears Penalty at 9% of average
turnover I in Crore) tw11over I in Crore)
Excel Crop Care lld 710.09 63.90
United Phosphorus lld 2804.95 252.44
Sandhya Otganics 57.4 Q·ore 1.57 Crore
Chemicals (P) Ltd.
H
 EXCEL CROP CARE LIMITED v. COMPETITION 957
COMMISSION OF INDIA [A. K. SIKRI, J.]

52. Under Section 27(b) of the Act, penalty of 10% of the turnover A
is prescribed as the maximum penalty with no provision for minimum
penalty. CCI had chosen to impose 9% of the average turnover keeping
in view the serious nature of the breach on the pmi of these appellants.
53. The COMPAT has maintained the rate of penalty i.e. 9% of
the three years average turnover. However, it has not agreed with the B
CCI that 'turnover' mentioned in Section 27 would be 'total tmnover' of
the offending company. In its opinion it has to be 'relevant turnover' i.e.
turnover of the product in question. Since, Mis. Excel Crop Care and
UPL were multi-product companies, products other than APT could not
have been included for the purpose of imposing the penalty. It, therefore,
held that penalty of 9% would be limited to the product/service
c
in question - in this case, the APT - which was the relevant product for
the enquiry. The penalty, thus, stands substantially reduced in the cases
of Mis. Excel Crop Care and UPL as can be seen from the following
chmi:
D
Reduced
Average of
Average of Penalty at
three years
Name of the three years 9%of
relevant
firms turnover (in relevant
turnover
Crore) turnover
(Rs. Crore)
(Rs. Crore) E
Excel Crop
710.09 32.41 crore 2.92
Care Ltd.
United
Phosphorus 2804.95 77.14 crore 6.94
Ltd.
F

54. Insofar as M/s. Sandhya Organics Chemicals (P) Ltd. is

concerned, the 'relevant turnover' and 'total turnover' is the same as
this company produced only APT tablets. CCI had imposed penalty of
. ~ 1.57 crores on the basis of their turnover of this product. However, in G
its case also, penalty is reduced on the ground that it is relatively a small
enterprise. Moreover, in respect of May 2011 tender, it could not have
taken part since its production capacity was only 25 MT a month. Though,
the aforesaid plea was not accepted while discussing the merits of the
case, the COMPAT deemed it proper to take this aspect into consideration
H
958 SUPREME COURT REPORTS [2017] 5 S.C.R.

A when it came to imposition of penalty. On the aforesaid basis, COMPAT

reduced the penalty to l/lO'h of penalty awarded by CCI i.e. '15.70
lakhs.
55. The CCI is not happy with the aforesaid outcome whereby
penalty imposed by it is sharply reduced by the COMPAT. Against this
B part of the impugned judgment, CCI is in appeal.
56. In the aforesaid backdrop, the moot question is as to whether
penalty under Section 27(b) of the Act has to be on 'total/entire turnover'
of the company covering all the products or it is relatable to 'relevant
turnover', viz., relating to the product in question in respect whereof
c provisions of the Act are contravened. Section 27 of the Act stipulates
nature of the orders which the CCI can pass after enquiry into agreements
or abuse of dominant position. This Section empowers CCI to pass
various kinds oforders the nature whereof is spelt out in clauses (a), (b),
(d) and (g) (clauses (c) and (f) stand omitted). As per clause (b), CCI
is empowered to inflict monetary penalties, the upper limit whereof is
D 10% "of the average of turnover for the last three preceding financial
years". Operative portion of Section 27 of the Act is reproduced below:
"27. Orders by Commission after inquiry into agreements
or abuse of dominant position. - Where after inquiry the
Commission finds that any agreement refe1Ted to in section 3 or
E action of an enterprise in a dominant position, is in contravention
of section 3 or section 4, as the case may be, it may pass all or
any of the following orders, namely:-
xxx xxx xxx
(b) impose such penalty, as it may deem fit which shall be not
F
more than ten per cent. of the average of the turnover for the
last three preceding financial years, upon each of such person or
enterprises which are parties to such agreements or abuse:
[provided that in case any agreement referred to in
section 3 has been entered into by a cartel, the Conunission may
G
impose upon each producer, seller, distributor, trader or service
provider included in that cartel, a penalty ofup to three times of
its profit for each year of the continuance of such agreement or
ten per cent of its turnover for each year of the continuance of
such agreement, whichever is higher.]"
H
 EXCEL CROP CARE LIMITED v. COMPETITION 959
COMMISSION OF INDIA [A. K. SIKRI, J.]

57. Extensive as well as intensive argument of Mr. Kaul, learned A

Additional Solicitor General, was that in S. 27(b) of the Act, there is no
reference to 'relevant turnover'. On the contrary, clause (b) of S. 27 in
clear terms, stipulates penalty on the 'turnover' i.e. average of the
turnover for the last three preceding financial years and it plainly suggests
that this 'turnover' has to be of the enterprise which had contravened
B
the provisions of Section 3 or Section 4. He submitted that clear intention
of the Legislature was to take into consideration entire turnover of the
enterprise. Reading the word 'relevant' thereto would be doing violence
to the plain language of the statute, by adding the word which is not
there.
58. According to him, the expression 'turnover' is not limited or
c
restricted in any manner and introduction of concept of 'relevant
turnover' amounts to adding words to the statute. He premised his
submission on well-settled principle of statutory interpretation that where
the language of a statute is plain and clear, the Court ought not to add
words to limit or alter the meaning of the statute and cited the following D
judgments in support : Prab/111das Damodar Kotecha & Ors. v.
Manhabala Jeram Damodar & Anr. 10 ; Raglwnath Rai Bareja &
Anr. v. Punjab National Bank & Ors. 11 ; V.L.S. Finance Ltd. v. Union
of India & Ors. 12 ; and Bharat Aluminium Company v. Kaiser
Aluminium Tecltnical Services Inc. 13 •
E
59. Mr. Kaul also placed heavy reliance on the following discussion
in the case of Steel Authority of India Ltd. 14 in the context of the
Competition Act:
"52. A statute is stated to be the edict of!egislature. It expresses
the will of legislature and the function of the court is to interpret F
the document according to the intent of those who made it. It is
a settled rule of construction of statute that the provisions should
be interpreted by applying plain rule of construction ...
xx xx xx
56. Thus, the court can safely apply rule of plain construction G
and legislative intent in light of the object sought to be achieved
10
c2013) 15 sec 358
11
c2001i 2 sec 230
12
c2013 l 6 sec 278
"(2012) 9 sec 552
14 Footnote 1 H
960 SUPREME COURT REPORTS [2017] 5 S.C.R.

A by the enactment. While interpreting the provisions of the Act, it

is not necessary for the court to implant, or to exclude the words,
or overemphasise language of the provision where it is plain and
simple. The provisions of the Act should be pe1mitted to have
their full operation rather than causing any impediment in their
application by unnecessarily expanding the scope of the provisions
B
by implication."
60. According to him, a plain reading of Section 27 as a whole,
which includes Section 27(a) as well, also makes it clear that the target
of the penalty is the 'person' or 'enterprise' that has acted in violation of
the Act, and not the 'product' or the 'service' alone which is made the
c subject of the violation. As such, the expression 'turnover' must
necessarily mean the turnover of the 'person' or the 'enterprise' which
is party to the anti-competitive agreement or abuse of dominance.
61. Critiquing the approach of the COMPAT, he submitted that it
has introduced the concept of 'relevant' turnover in Section 27 despite
D the absence of the word 'relevant', failing to notice that wherever the
Act wanted to introduce the concept of 'relevance' the word 'relevant'
has, in fact, been used in the appropriate sections. In this regard, he
referred to Sections 2(r), 2(s), 2(t), 4(2)(e), 6, 19(6), 19(7), etc. where
the expression 'relevant' is specifically used. He also referred to the
E definition of 'turnover' as contained in Section 2(y) of the Act, which
includes value of goods or services, and submitted that it is the aforesaid
definition of 'turnover 'which has to be applied wherever this expression
occurs in the Act and it cannot be read to have different criteria for
determining penalty and the thresholds applicable for regulation of
combinations. He also sought to highlight that where the expression is
F used in the same section, it should generally be given the same meaning,
as held in Suresh Chand v. Gu/am Chisti 15 and Raglwbans Narain
Singh v. Uttar Pradesh Government through Collector of Bijnor 16 •
62. Taking this very argument further, he submitted that
interpretation given by the COMPAT would render the proviso after
G Section 27 redundant, as the said proviso specifically provides for situations
where more than one member of a group (each may be producing
different products/services) is part of the anti-competitive conduct.

"(1990) 1 sec 593

16
( 1967) I SCR 489

H
 EXCEL CROP CARE LIMITED v. COMPETITION 961
COMMISSION OF INDIA [A. K. SIKRI, J.]

63. Mr. Kaul went to the extent of arguing that even if purposive A
interpretation is to be given to the provisions of Section 27(b) of the Act,
main purpose which cannot be lost sight of and ignored is that it is a
deterrent provision. The purpose behind such a provision is to give a
message that the persons or enterprises should not indulge in such anti-
competitive activities, as otherwise they will be inflicted with heavy
B
penalties. According to him, the kind of cartalisation formed by the
appellants in this case is a clear example of 'hardcore cartel 'behaviour
which is deprecated by even the OECD as such hardcore cartels benefit
only the cartel members and are extremely injurious to the interest of all
others, with extraordinary adverse affect on the market and the
consumers. He further submitted that f01mation of cartels reduces social c
welfare and the COMPAT has ignored these factors as well while giving
restricted interpretation to 'turnover 'by making it product specific and
not person/enterprise specific.
64. Advancing this very argument further, he even drew parallel
with the laws in other jurisdictions by stating the comparative legal position D
in European Union, United Kingdom, Australia, etc. and submitted that it
could be discerned from the law enacted in those jurisdictions that
everywhere overall cap is of 10% of 'worldwide turnover' and is not
restricted to 'relevant turnover'.
65. He further submitted that the aforesaid provision imposed a E
cap on the penalty by stipulating that it shall not be more than 10%.
Thus, the CCI had the discretion to impose the penalty from 0% to 10%
and this was sufficient safeguard to take care of the proportionality aspects
of the penalty wherever penalty on total turnover is found to bring
unreasonable results. In other words, in respect of multi-product
companies where the turnover covering non-offending products, is quite F
high, the CCI can always impose much lesser rate of penalty so that the
penalty does not sound to be excessive and unconscionable and remains
proportionate to the nature of contravention. However, it is not permissible
to tinker the language of a statute.
66. Adverting to the specific case of Mis. Sandhya Organics G
Chemicals (P) Ltd., submission of Mr. Kaul was that the reason given
by COMPAT in reducing the penalty was self-contradictory inasmuch
as contention of this appellant that it did not bid in May 2011 tender of
FCl was because of the reason that its production capacity was mere
25 MT per month was specifically rejected by the COMPAT, but this H
962 SUPREME COURT REPORTS [2017] 5 S.C.R.

A very rejected contention formed the basis of reducing the penalty. It

was also submitted that in any case there was no justification in reducing
the penalty to III 0'11 of the penalty imposed by the CCI, i.e. from 9% to
0.9%, when the COMPAT itself observed that the nature of breach
committed by the appellants was very serious and going by this
consideration, the COMPAT maintained the penalty@ 9% in the case
B
of the other two appellants.
67. Learned counsel appearing for the three appellants attempted
to put an astute and sagacious answer to the aforesaid arguments of the
Learned Additional Solicitor General. Justifying the approach of the
COMPAT in this behalf, it was argued that even the plain language of
c Section 27(b) leads to the interpretation that is given by the COMPAT.
They also stressed that this provision being a penal provision, has to be
strictly construed. No wider meaning can be given to it. The learned
counsel quoted the illustration in cases where identical infringement is
alleged in respect of several enterprises, some of which may be 'single
D product companies' and others may be 'multi-product companies'
(which was the position in the instant case itselt), and submitted that
there would be no justification for prescribing the maximum penalty based
on the total turnover of the enterprise, as it would result in prescribing a
higher maximum penalty for multi-product companies, as against the
single product companies, thereby bringing very inequitable results. For
E identical infringement, there would be no justification for prescribing such
differential maximum limits. Keeping this aspect into consideration, it is
all the more reason for interpreting Section 27(b) on the basis of its plain
language as the word 'total' was also not prefixed with 'relevant' by the
Legislature. Since it was a provision relating to penalty, which was to be
F imposed on 'turnover', the said 'turnover' was necessarily relatable to
the offending product only and Legislature never intended to punish any
person or enterprise even in respect of unblemished product. It was
also emphasized that penalty under Section 27(b) is to be levied for
contravention of Section 3 in respect of any 'agreement' resulting in
appreciable adverse effect on competition. Therefore, it would not relate
G to all the products of the company included in the total turnover of the
enterprise. As such, when penalty is being imposed in respect of any
infringing product, the turnover of that product would be relevant. The
learned counsel criticised the approach of the CCI in imposing penalties
by taking the maximum penalty as the starting point of determination
H and then purporting to reduce it suitably, as totally incoffect approach. It
 EXCEL CROP CARE LIMITED v. COMPETITION 963
COMMISSION OF INDIA [A. K. SIKRI, J.)

was argued that the quantum of appropriate amount of penalty has to be A

first determined after taking into consideration the relevant factors. The
relevance of the maximum penalty is only for the limited purpose to
ensure that the quantum so determined, does not exceed the maximum
penalty.
68. Learned counsel for the appellants also advocated for applying B
the doctrine of proportionality which has universal application and lays
down that 'the broad 1jrinciples that the punishment must be
proportioned to the offence is or ought to be of universal application ·
as held in Ariiind Mohlln Sin/ill v. Amulya Kumar Biswas & Ors. 17
Attention of the Court was also drawn to another judgment of this Court
in State of Haryana & Ors. v. Sant Lal & Am: 18 where penalty for C
evasion of tax sought to be levied on the basis of20% of the value of the
tax was held to be ultra vires. Likewise, application of this doctrine of
proportionality applied in Bhagat Rtlm v. State ofl/imllchtll Pradel11
& Ors. 19 was emphasised by referring to the following passage therein:
"16 ... It is equally true that the penalty imposed must be D
commensurate with the gravity of the misconduct, and that any
penalty disproportionate to the gravity of the misconduct would
be violative of Article 14 of the Constitution ... "
69. Countering the argument of the learned Additional Solicitor
General predicated on the parallel drawn with the law in the other E
countries, it was submitted that in other jurisdictions specific guidelines
were issued which formed the basis of exercising the discretion in an
objective manner. In contra-distinction, no guidelines are prescribed under
the Act in India and it was submitted that a perusal of the guidelines
issued by the European Union as well as the Office of Fair Trading in F
the United Kingdom would show that for determining the appropriate
quantum of penalty, the 'relevant turnover', i.e. the turnover of the
infringing product, is taken into consideration. This assumes great
importance in cases where an enterprise is a multi-product company.
70. In addition to the aforesaid arguments, learned counsel G
appearing for UPL submitted that since it was a multi-product company,
its average of the total turnover of three years was ~2804.95 crores.
By imposing penalty of 9% on the total turnover, the CCI had levied
"( 1974) 4 sec 222
'"(1993) 4 sec 380
" ( 1983) 2 sec 442 H
964 SUPREME COURT REPORTS [2017) 5 S.C.R.

A penalty of~252.44 crores, which was highly disproportionate as even

the total production and sale of APT tablets, for the three years, was
much less than the aforesaid penalty. It was pointed out that the average
total turnover of the APT tablets comes to ~77 .14 crores only, which is
hardly 3% of the total turnover. On that basis it was argued that by
taking total turnover for the purpose of penalty clearly amounted to
8
disproportionate penalty as it was more than 300% of the total turnover
of APT tablets. This, according to the learned counsel, itself provided
full justification in the approach of the COMPAT by reading the concept •
of 'relevant turnover' while interpreting Section 27(b) of the Act.
71. We have given our serious thought to this question of penalty
c with reference to 'turnover 'of the person or enterprise. At the outset,
it may be mentioned that Section 2(y) which defines 'turnover· does
not provide any clarity to the aforesaid issue. It only mentions that
turnover includes value of goods or services. There is, thus, absence of
certainty as to what precise meaning should be ascribed to the expression
D 'turnover'. Somewhat similar position appears in EU statute and in
order to provide some clear directions, EU guidelines on the subject
have been issued. These guidelines do refer to the concept of 'relevant
turnover'. Grappling with the same very issue, the judgment of the
Competition Appeal Court of South Africa in the case of Southern
Pipeline Contractors Conrite Walls (Pty) Ltd. v. The Competition
E Commissio11 20 provides the answer in the following manner:
"51. The concept of 'turnover' is not defined in the Act and is
only referred to in Section 59(2), being annual turnover. There
is thus s9me uncertainty as to the precise meaning of 'turnover'.
However, Section 59(3) refers on more than one occasion to
F 'the contravention', in particular, in dealing with the nature,
duration, gravity and extent 'of the contravention', the loss or
damage suffered as a result of the 'contravention' the market
circumstances in which 'the contravention' the market
circumstances in which 'the contravention' took place and the
G level of profit derived from 'the contravention'. Thus there is a
legislative link between the damage caused and the profits which
accrue from the cartel activity. The inquiry, in terms of Section
59(20), appears to envisage that consideration be given to the
benefits which accrue from the contravention: that is to amount
20
H Case No. I 05/CAC/Dec I 0) (I 06/CAC/Dec I OJ
 EXCEL CROP CARE LIMITED v. COMPETITION 965
COMMISSION OF INDIA [A. K. SIKRI, J.]

to affected turnover. By using the baseline ofaffected turnover' A

the implications of the doctrine of prop011ionality that is between
the nature of the offence and benefit derived therefrom, the
interests of the consumer community and the legitimate interests
of the offender can be taken more carefully into account and
appropriately calibrated." [Emphasis supplied]
B
72. Judgement in the case of Southern Pipeline Contractors
Conrite Walls (Pty) Ltd. 20 reveals that the Court therein was concerned
with the provisions of Section 59 of the Competition Act, 1998 of South
Africa which also provides for maximum penalty of I 0% of the annual
turnover. The Court held that the appropriate amount of penalty had to
be determined keeping into consideration the damage caused and the c
profits which accrne from the cartel activity. The Appeal Court used
the words 'affected turnover'. It determined the amount of penalty on
the basis of these guidelines issued by the European Union (EU) and the
Office of Fair Trade (OFT). In that case the concerned company
Southern Pipeline Contractors was a multi-product company and the D
'affected turnover' was comparatively small.
73. It is interesting to note that the parties on either side are resting
their cases on the same principle of statutory interpretations. Pertinently,
Section 27(b) of the Act while prescribing the penalty on the 'turnover',
neither uses the prefix 'total' nor 'relevant'. It is in this context, taking E
aid of the applicable and well-recognised principle of statutory
interpretations we have to determine the issue.
74. In the absence of specific provision as to whether such
turnover has to be product specific or entire turnover of the offending
company, we find that adopting the criteria of 'relevant turnover' for F
the purpose of imposition of penalty will be more in tune with ethos of
the Act and the legal principles which surround matters pertaining to
imposition of penalties. For arriving at this conclusion, we are influenced
by the following reasons:
(i) Under Section 27(b) of the Act, penalty can be imposed under G
two contingencies, namely, where an agreement referred to in Section 3
is anti-competitive or where an enterprise which enjoys a dominant
position misuses the said dominant position thereby contravening the
provisions of Section 4 .. In case where the violation or contravention is
of Section 3 of the Act it has to be pursuant to an 'agreement'. Such an
H
966. SUPREME COURT REPORTS [2017] 5 S.C.R.

A agreement may relate to a particular product between persons or

enterprises even when such persons or enterprises are having production
in more than one product. There may be a situation, which is precisely
in the instant case, that some of such enterprises may be multi-product
companies and some may be single product in respect of which the
agreement is an-ived at. If the concept of total tum over is introduced it
B
may bring out very inequitable results. This precisely happened in this
case when CCI imposed the penalty of9% on the total turnover which
has already been demonstrated above.
(ii) Interpretation which brings out such inequitable or absurd results
has to be eschewed. This fundamental principle of interpretation has
c been repeatedly made use of to avoid inequitable outcomes. The Canadian
Supreme Court in Ontario vs. Canadian Pacific Lttl.11 wherein the
expression 'use' occun-ing in Environment Protection Act was given
restricted meaning. The principle that absurdity should be avoided was
explained in the following manner:
D "The expression "for any use that can be made of the natural
environment has an identifiable literal or "plain" meaning when
viewed in the context of the EPA as a whole, particularly the
other paragraphs of s. 13(1). When the terms of the other
paragraphs are taken into account, it can be concluded that the
E literal meaning of the expression "for any use that can be made
of the natural environment" is "any use that can conceivably be
made of the natural environment by any person or other living
creature". In ordinary circumstances, once the "plain meaning"
of the words in a statue have been identified there is no need for
further interpretation. Different considerations can apply,
F however, in cases where a statute would be unconstitutional if
interpreted literally. This is one of those exception cases, in that
a literal interpretation ofs. 13(l)(a) would fail to meet the test
for overbreadth established in Heywood.
The state objective underlying s. 13(l)(a) EPA is, ass. 2 of
G the Act declares, "the protection and conservation of the natural
environment". This legislative purpose, while broad, is not without
limits. In particular, the legislative interest in safeguarding the
environment for "uses" requires only that it be preserved for
those "uses" that are normal and typical, or that are likely to
21 (1995) 2 SCR 103 l
H
 EXCEL CROP CARE LIMITED v. COMPETITION 967
COMMISSION OF INDIA [A. K. SIKRI, J.]

become normal or typical in the future. Interpreted literally, s. A

13(1 )(a) would capture a wide range of activities that fall outside
the scope of the legislative purpose underlying it, and would fail
to meets. 7 overbreadth scrutiny. There is, however, an alternative
interpretation of s.13(1 )(a) that renders it constitutional. Section
13(l)(a) can be read as expressing the general intention of s. B
13(1) as a whole, and paras. 13(1 )(b) through (h) can be treated
as setting out specific examples of"impairment(s) of the quality
of the natural environment for any use that can be made of it".
When viewed in this way, the restrictions place on the word
"use" in paras. (b) through (h) can be seen as imported into (a)
through a variant of the ejusdem generis princile. Interpreted C
in this manner, s.13(1 )(a) is no longerunconstitutionally overbroad,
since the types of harms captured by paras. (b) through (h) fall
squarely within the legislative intent underlying the section. In
light of the presumption that the legislature intended to act in
accordance with the constitution, it is appropriate to adopt this D
interpretation of s.13(l)(a). Thus, the subsection should be
understood as covering the situations captured by paras. 13(1 )(b)
through (h), and any analogous situations that might arise."
We would also like to quote the following observations from State
of Jharklzand and Another v. Govind Singh 22 :
E
"20. While interpreting a provision the court only interprets the
law and cannot legislate it. lf a provision of law is misused and
subjected to the abuse deemed necessary. [See CSTv. Popular
Trading C. : (2000) 5 SCC 511: AIR 2000 SC 1578]. The
legislative casus omissus cannot be supplied by judicial
interpretative process." F

Likewise, following passages from the judgment of this Court in

Commissioner of Income Tax, Bangalore v. J.H Yadagiri 13 shed
light of similar nature. ·
"45.In the case ofK.P Varghesev.ITO[(l981) 4 SCC 173:
G
1981 SCC (Tax) 293: (1981) 13 l ITR597] this Court emphasised
that a statutory provision must be so construed, if possible, that
absurdity and mischief may be avoided.

22
(2005) 10 sec 437
"(1985) 4 sec 343 H
968 SUPREME COURT REPORTS [2017] 5 S.C.R.

A 46. Where the plain literal interpretation of a statutory provision

produces a manifestly unjust result which could never have been
intended by the Legislature, the Court might modify the language
used by the Legislature so as to achieve the intention of the
Legislature and produce a rational construction. The task of
interpretation of a statutory provision is an attempt to discover
B
the intention of the Legislature from the language used. It is
necessary to remember that language is at best an imperfect
instrument for the expression of human intention. It is well to
remember the warning administered by Judge Learned Hand
that one should not make a fortress out of dictionary but remember
c that statutes always have some purpose or object to accomplish
and sympathetic and imaginative discovery is the surest guide to
their meaning.
47. We have noted the object of Section 16(3) of the Act which
has to be read in conjunction with Section 24(2) in this case for
D the present purpose. lf the purpose of a particular provision is
easily discernible from the whole scheme of the Act which in
this case is, to counteract the effect of the transfer of assets so
far as computation of income of the assessee is concerned then
bearing that purpose in mind, we should find out the intention
from the language used by the Legislature and if strict literal
E construction leads to an absurd result i.e. result not intended to
be subserved by the object of the legislation found in the manner
indicated before, and if another construction is possible apart
from strict literal construction then that construction should be
preferred to the strict literal construction. Though equity and
F taxation are often strangers, attempts should be made that these
do not remain always so and if a construction results in equity
rather than in injustice, then such construction should be preferred
to the literal construction. Furthermore, in the instant case we
are dealing with an artificial liability created for counteracting
the effect only of attempts by the assessee to reduce tax liability
G by transfer. It has also been noted how for various purposes the
business from which profit is included or loss is set off is treated
in various situations as assessee's income. The scheme of the
Act as worked out has been noted before.

H
 EXCEL CROP CARE LIMITED v. COMPETITION 969
COMMISSION OF INDIA [A. K. SIKRI, J.]

In Southern Motors vs. State of Karnataka and Others24, the A

Court explained the task that is to be undertaken by a Court while
interpreting such statutes:
"33. The following excerpts from Tata Steel Ltd. (supra), being
of formidable significance are also extracted as hereunder.
xxx xxx B

"25. In Oxford University Press v. Commissioner of Income

Tax [MANU/SC/0052/2001]:(2001) 3 SCC 359, Mohapatra,
J. has opined that interpretation should serve the intent and
purpose of the statutory provision. In that context, the learned
Judge has referred to the authority in State of T.N. v. C
Kodaikanal Motor Union (P) Ltd. [MANU/SC/0127/1986]:
(1986) 3 SCC 91 wherein this Court after referring to K.P.
Varghese v. ITO [MANU/SC/0300/1981]: (1981) 4 SCC 173
and Luke v. IRC (1964) 54 ITR 692 has observed:
The courts must always seek to find out the intention of the D
legislature. Though the courts must find out the intention of the
statute from the language used, but language more often than
not is an imperfect instrument of expression of human thought.
As Lord Denning said it would be idle to expect every statutory
provision to be drafted with divine prescience and perfect clarity. E
As Judge learned Hand said, we must not make a fortress out
of dictionary but remember that statutes must have some
purpose or object, whose imaginative discovery is judicial
craftsmanship. We need not always cling to literalness and
should seek to endeavour to avoid an unjust or absurd result.
We should not make a mockery of legislation. To make sense F
out of an unhappily worded provision, where the purpose is
apparent to the judicial eye 'some' violence to language is
permissible.
"26. Sabha1wal, J. (as His Lordship then was) has observed
~: G
.. .It is well-recognised Rule of construction that a statutory
provision must be so construed, if possible, that absurdity and
mischief may be avoided. It was held that construction

24
AIR 2017 SC 476 H
970 SUPREME COURT REPORTS [2017] 5 S.C.R.

A suggested on behalf of the Revenue would lead to a wholly

unreasonable result which could never have been intended by
the legislature. It was said that the literalness in the interpretation
of Section 52(2) must be eschewed and the court should try to
arrive at an interpretation which avoids the absurdity and the
mischief and makes the provision rational, sensible, unless of
B
course, the hands of the court are tied and it cannot find any
escape from the tyranny of literal interpretation. It is said that
it is now well-settled Rule of constmction that where the plain
literal interpretation of a statutory provision produces a
manifestly absurd and unjust result which could never have
c been intended by the legislature, the court may modify the
language used by the legislature or even "do some violence"
to it, so as to achieve the obvious intention of the legislature
and produce a rational constmction. In such a case the court
may read into the statutory provision a condition which, though
not expressed, is implicit in constming the basic assumption
D underlying the statutory provision ....
34. As would be ove1whelmingly pellucid from hereinabove,
though words in a statute must, to start with, be extended their
ordinary meanings, but if the literal construction thereof results
in anomaly or absurdity, the courts must seek to find out the
E underlying intention of the legislature and in the said pursuit, can
within permissible limits strain the language so as to avoid such
unintended mischief."
(iii) The principle of strict interpretation of a penal statute would
support and supplement the aforesaid conclusion arrived at by us. In a
F recent Constitution Bench judgment in the case of Abhiram Singh and
Others v. C.D. Co111111ac/1en (Dead) by L.Rs. and Ors. 25 , this Court
scanned through the relevant case law on the subject and applied this
principle even while construing "conupt practice" in elections which is
of a quasi criminal nature. We would like to reproduce following
G discussion from the said judgment:
"98. Election petitions alleging conupt practices have a quasi-
criminal character. Where a stah1t01y provision implicates penal
consequences or consequences of a quasi-criminal character, a

25 AIR2017 SC401
H
 EXCEL CROP CARE LIMITED v. COMPETITION 971
COMMISSION OF INDIA [A. K. SIKRI, J.]

strict construction of the words used by the legislature must be A

adopted. The Rule of strict interpretation in regard to penal
statutes was enunciated in a judgment of a Constitution Bench
of this Court in Tolaram Relumal v. State of Bombay [(1951)
1 SCR 158 =AIR 1954 SC 496] where it was held as follows:
" ... It may be here observed that the provisions of B
Section 18( 1) are penal in nature and it is a well settled Rule
of construction of penal statutes that if two possible and
reasonable constructions can be put upon a penal provision,
the Court must lean towards that construction which exempts
the subject from penalty rather than the one which imposes
penalty. It is not competent to the Court to stretch the meaning c
of an expression used by the Legislature in order to cany out
the intention of the Legislature. As pointed out by Lord
Macmillan in London and North Eastern Railway Co. v.
Berriman, "where penalties for infringement are imposed it is
not legitimate to stretch the language of a rule, however D
beneficent its intention, beyond the fair and ordina1y meaning
of its language.
This principle has been consistently applied by this Court while
construing the ambit of the expression 'corrupt practices'. The
Rule of strict interpretation has been adopted in Amolakchand E
Chhazed v. Bhagwandas; MANU/SC.0086/1976: (1977) .3
SCC 566. A Bench of three Judges of this Court held thus:
"12 .... Election petitions alleging corrupt practices are
proceedings of a quasi-criminal nature and the onus is on the
person who challenges the election to prove the allegations F
beyond reasonable doubt."
(iv) In such a situation even if two interpretations are possible,
one that leans in favour of infringer has to be adopted, on the principle of
strict interpretation that needs to be given to such statutes.
(v) When the agreement leading to contravention of Section 3 G
involves one product, there seems to be no justification for including
other products of an enterprise for the purpose of imposing penalty.
This is also clear from the opening words of Section 27 read with Section
3 which relate to one or more specified products. It also defies common
H
972 SUPREME COURT REPORTS [2017] 5 S.C.R.

A sense that though penalty would be imposed in respect of the infringing

product, the 'maximum penalty' imposed in all cases be prescribed on
the basis of 'all the products' and the 'total turnover' of the enterprise.
It would be more so when total turnover of an enterprise may involve
activities besides production and sale of products, like rendering of services
etc. It, therefore, leads to the conclusion that the turnover has to be of
B
the infringing products and when that is the proper yardstick, it brings
home the concept of 'relevant turnover'.
(vi) Even the doctrine of'proportionality' would suggest that the
Court should lean in favour of 'relevant turnover'. No doubt the
objective contained in the Act, viz., to discourage and stop anti-competitive
c practices has to be achieved and those who are perpetrators of such
practices need to be indicted and suitably punished. It is for this reason
that the Act contains penal provisions for penalising such offenders. At
the same time, the penalty cannot be disproportionate and it should not
lead to shocking results. That is the implication of the doctrine of
D proportionality which is based on equity and rationality. It is, in fact, a
constitutionally protected right which can be traced to Article 14 as well
as A11icle 21 of the Constitution. The doctrine of proportionality is aimed
at bringing out 'proportional result or proportionality stricto sensu '. It is
a result oriented test as it examines the result of the law in fact the
proportionality achieves balancing between two competing interests: haim
E caused to the society by the infringer which gives justification for penalising
the infringer on the one hand and the right of the infringer in not suffering
the punishment which may be disproportionate to the seriousness of the
Act.
No doubt, the aim of the penal provision is also to ensure that it
F acts as deterrent for others. At the same time, such a position cannot be
countenanced which would deviate from 'teaching a lesson' to the
violators and lead to the 'death of the entity' itself. lf we adopt the
criteria of total turnover ofa company by including within its sweep the
other products manufactured by the company, which were in no way
G connected with anti-competitive activity, it would bring about shocking
results not comprehended in a country governed by Rule of Law. Cases
at hand itself amply demonstrate that the CCI 's contention, if accepted,
would bring about anomalous results. In the case of Mis. Excel Crop
Care Limited, average of three years' turnover in respect of APT, in
respect whereof anti-competitive agreement was entered into by the
H
 EXCEL CROP CARE LIMITED v. COMPETITION 973
COMMISSION OF INDIA [A. K. SIKRI, J.]

appellants, was only 32.41 crores. However, as against this, the CCI A
imposed penalty of Rs. 63.90 crores by adopting the criteria of total
turnover of the said company with the inclusion of turnover of the other
products as well. Likewise, UPL was imposed penalty of252.44 crores
by the CCI as against average of the three years' turnover of APT of
Rs. 77.14 crores. Thus, even when the matter is looked into from this
B
angle, we arrive at a conclusion that it is the relevant turnover, i.e.,
turnover of the particular product which is to be taken into consideration
and not total turnover of the violator.
(vii) The doctrine of 'purposive interpretation' may again lean
in favour of 'relevant turnover' as the appropriate yardstick for
imposition of penalties. It is for this reason the judgment of Competition
c
Appeal Court of South Africa in the Southern Pipeline Contractors
Conrite Wa/ls 20 , as quoted above, becomes relevant in Indian context
as well inasmuch as this Court has also repeatedly used same principle
of interpretation. It needs to be repeated that there is a legislative link
between the damage caused and the profits which accrue from the cartel D
activity. There has to be a relationship between the nature of offence
and the benefit derived therefrom and once this co-relation is kept in
mind, while imposing the penalty, it is the affected turnover, i.e., 'relevant
turnover' that becomes the yardstick for imposing such a penalty. In
this hue, doctrine of 'purposive interpretation' as well as that of
'proportionality' overlaps. E
In fact, some justifications have already appeared in this behalf
while discussing the matter on the application of doctrine of proportionality.
What needs to be repeated is only that the purpose and objective behind
the Act is to discourage and stop anti-competitive practice. Penal provision
contained in Section 27 of the Act serves this purpose as it is aimed at F
achieving the objective of punishing the offender and acts as deterrent
to others. Such a purpose can adequately be served by taking into
consideration the relevant turnover. It is in the public interest as well as
in the interest of national economy that industries thrive in this country
leading to maximum production. Therefore, it cannot be said that purpose G
of the Act is to 'finish' those industries altogether by imposing those
kinds of penalties which are beyond their means. It is also the purpose
of the Act not to punish the violator even in respect of which there are
no anti-competitive practices and the provisions of the Act are not
attracted.
H
974 SUPREME COURT REPORTS [2017] 5 S.C.R.

A We may mention that Mr. Kaul, learned Additional Solicitor General

had referred to the statutory regimes in various other countries in his
endeavour to demonstrate that it is the concept of total turnover which
was recognised in other jurisdictions as well. The attempt was to show
that the principle of 'total turnover' was prevalent across the globe
wherever such laws are enforced. On the contrary, the learned counsel
B
for the appellants pointed out the provision contained in similar statutes
of some countries where the concept of relevant turnover had been
adopted. South Africa is one such example and, in fact, COMPAT has
referred to the judgment of Southern African Competition Appeal Cow·t
in this. behalf, i.e., Southern Pipeline Contractors Conrite Walls (Pty)
c Ltd. 20 case. In such a scenario, it may not be necessary to deal with
the statutory provisions contained in different countries. In view of
interpretation that is given by us to the provision at hand, we would,
however, like to comment that in some of the jurisdictions cited by Mr.
Kaul, leamedAdditional Solicitor General, the guidelines are also framed
which ensure that the penalty does not become disproportionate, for
D
example, in the UK, the Office of Fair Trade (OFT) has 'guidelines as
to the appropriate amount of penalty'. In contrast, there are no similar
guidelines issued as far as India is concerned and in the absence thereof
imposition of penalty, taking into consideration total turnover, may bring
about disastrous results which happened in the instant case itself with
E the imposition of penalty by the CCI.
Thus, we do not find any error in the approach of the order of the
COMPAT interpreting Section 27(b ).
75. The upshot of the aforesaid discussion would be to dismiss
the appeals of the appellants as well as the appeals filed by the CCI.
F There shall, however, be no order as to costs.

N. V. RAMANA, J. l. I have had the privilege of going

through the erndite and well considered judgment of my learned brother.
G In view of well considered judgment, in the usual course, it may not
have warranted another concurring judgment. But when the issue at
hand is being grappled by jurisdictions across the globe, a concurring
judgment cannot be treated as a repetitive exercise. Although I accept
the conclusions reached by my learned brother, there was a need felt by
me to pen down my own thoughts on a small aspect concerning imposition
H
 EXCEL CROP CARE LIMITED v. COMPETITION 975
COMMISSION OF INDIA [N. V. RAMANA, J.]

of penalty under Section 27(b) of the Competition Act, 2002 [hereafter A

'Act'for brevity]. Though my opinion is only limited to the legal question
involved in this case, a brief reference to facts might be necessary.
2. On a complaint being instituted by the Food Corporation of
India [hereinafter 'FCI'for brevity], Director General for Investigation
(Competition Commission of India) (DG) investigated into the matter B
and found that four companies namely Excel Corp. Care Ltd. [hereinafier
'ECCL' for brevity], United Phosphorns Ltd. [herein(Jf;er 'UPL' .for
brevity], Sandhya Organics Chemicals (Pvt.) Ltd. [herein(Jfier 'SOCL'
for brevity] (three appellants herein) and Agrosynth Chemicals Ltd.
[hereina.fier 'ACL'.for brevity] were involved in collusive bidding in
relation to tenders issued by FCI for Aluminium Phosphide Tablets
c
[herein(Jfier 'APT' for brevity]. Following chart would indicate the
pattern of bidding undertaken by the aforesaid companies-
TABLE 1.1 - pattern of bidding
:,',, ;. ...
;,;~
:;~~MtAf. RA'fEsJb{· ·TENDERS RRC . REMARKS
'-:-?;:;:~\_::;'.'. . D
'i:~N~:Eils:· i·'.' Quo1'£D•·.·· AWARDED RATES ·.· .
2002 UPL Rs. 245/- FCI had to
UPL
per Kg. award Rate
ECCL inclusive of Running
ECCL
all charges Contract to
SOCL and taxes all tenders
SOCL E
F.O.R as they
ACL destination quoted to
ACL against issue same rates
of 'C' Form.
Mar- Rs. 310 per Tender Tender was Tenders had
UPL
05 Kg. \Vas was scrapped quoted same
ECCL quoted by all scrapped rates and F
the pa1ties upon
SOCL negotiations ·
all the
pa1ties
ACL reduced to
the rate to
G
Rs. 290/-
Nov- UPL No party Tender Tender was All pa1ties
05 submitted was scrapped abstained
ECCL
tender scrapped from the
SOCL process of
ACL tendering
H
976 SUPREME COURT REPORTS [2017] 5 S.C.R.

A
2007 Rs. 200/- per UPL Rs. 200/- The period
UPL
Kg. per kg. ofRRC was
Rs. 235/- per extended for
ECCL
Kg. another year
Rs. 236/- per as per
SOCL
Kg. tender terms
B
Rs. 234/- per but the party
Kg. With 'C' failed to
Form and Rs. supply
ACL
247.50 during the
without 'C' extended
forms period
.c 2008 Fresh tender was floated at the risk & cost of UPL but no party
participated in the tender.
2009 VPL Rs. 388/- per UPL, After I
KG. ECCL, negotiations
ECCL SOCL the rate was
brought
D down to Rs.
SOCL
386 per Kg.

3. After considering the report of DG, CCI exonerated ACL but

found the three appellant companies had indulged in anti-competitive
E practices in violation of Section 3 of the Act and imposed 9% of average
3 years' of total tumoverunder Section 27(b) of the Act in the following
manner-
TABLE 1.2 - penalty as imposed by the CCI
PENALTY OF 9% OF
F AVERAGE TUllNOVER ON
(;RORE)

UPL 2804.95 252.44

G
SOCL 17.52 !.57

4. Aggrieved by the order of the CCI, appellants approached

COMPAT by way of separate appeals. By a common order, dated
H
 EXCEL CROP CARE LIMITED v. COMPETITION 977
COMMISSION OF INDIA [N. V. RAMANA, J.]

29 .10.2013, COMPAT held that in case of multi-product companies, only A

'relevant turnover' of the product/service in question should be taken
into consideration while imposing penalty in the following manner-

TABLE 1.3 - penalty as imposed by the COMPAT

B

>'flJnNQYER c
(INCRORE)
ECCL 710.09 32.41 2.92

UPL 2804.95 77.14 6.94

D
SOCL The penalty was reduced to on the consideration
of SOCL being a small enterprise to Rs. 15.70
Lakhs.

5. Being aggrieved by the order of the COM PAT, CCI as well E

as the companies are in appeal before us. With respect to other issues,
my learned brother has dealt exhaustively, which does not require any
more consideration. The only issue which in my opinion requires further
consideration is the issue of quantum of penalty under Section 27 of the
Act. Therefore the limited question which I will be dealing is 'Whether
F
'turnover' as occurring under Section 27 of the Act means 'relevant
turnover' or 'total turnover'?'
6. At the outset it would be useful to reproduce Section 27 (b) of
the Act as a starting point before we delve into discussions in this case-
SEcnoN 27 G

(b) impose such penalty, as it may deem fit which shall be not
more than ten per cent. of the average of the turnover for the
last three preceding financial years, upon each of such person or
enterprises which are parties to such agreements or abuse: H
978 SUPREME COURT REPORTS [2017] 5 S.C.R.

A Provided that in case any agreement referred to in section 3 has

been entered into by a cartel, the Com1nission may impose upon
each producer, seller, distributor, 1;[ader or service provider
included in that cartel, a penalty ofup to three times of its profit
for each year of the continuance of such agreement or ten per
cent. of its turnover for each year of the continuance of such
B
agreement whichever is higher;

A plain reading of this Section elucidates that the commission is

empowered to impose penalty and to the extent as it deems fit but not
c exceeding ten percent of the turnover. Section 27 (b) emphasize that
penalty is to be levied on 'person or enterprise' who have contravened
Section 3 or Section 4 of the Act. It is to be noted that proviso to Section
27(b), before it was amended, was couched in following terms-·
'provided that in case any agreement referred to in section 3 has
D been entered into by any cartel, the commission shall impose
upon each producer, seller, distributor, trader or service provider
included in that cartel, a penalty equivalent to three times of the
amount of profits made out of such agreement by the cartel or
ten per cent of the average of the turnover of the cartel for the .
last preceding three financial years.
E
After the amendment [Central Act 39 of2007] the proviso as it
stands today has been quoted above. The change which was brought
about by the aforesaid amendment is that the mandatory nature of the
Proviso was made discretionary by substitution of 'shall' with 'may'.
This amendment was done to bring the proviso in tune with the rest of
F Section 27, which uses the expression "it may pass all or any of the
following order" and main part of clause (b), which confers discretion
upon the Commission to impose penalty as it may deem fit, subject to the
rider that it shall not be more than I 0% of the average of the turnover
for the last three preceding financial years. It is important to note that
G Clauses (c) and (d) ofSection27 also uses the word 'may', which signifies
that the Commission has the discretion to pass a particular order, which
it may deem proper in the facts and circumstances of the case.
7. Two interpretations were canvassed before us, wherein either
the turnover, as occurring under Section 27 (b), is equivalent to the 'relevant
H turnover' or is equivalent to the 'total turnover'. In order to strengthen
 EXCEL CROP CARE LIMITED v. COMPETITION 979
COMMISSION OF INDIA [N. V. RAMANA, J.]

their arguments, respective Counsel have drawn our attention to various A

interpretations of'tumover' applied across the globe, such as the judgment
of Bundesgerichtshof(German Supreme Court) on 26th Febrnary 2013,
BCN Aduanas y Transportes, SA v Attorney General, Judgment of
the Supreme Court of Spain, No 112/2015, Case 2872/2013, OCL 183
(ES 2015) dated 29th Janua1y 2015 and Southern Pipeline Contractors
B
Conrite Walls (Pty) Ltd. and the Competition Commission, 105/CAC/
Deel 0 (South Africa). Further we have perused Guidelines on the method
of setting fines imposed pursuant to Article 23(2)( a) of regulation 1/2003
(2006/C 210/02) issued by the European Commission and Guidance as
to the appropriate amount of penalty (September 2012) issued by the
Office of fair Trading (OFT), United Kingdom. It is my considered opinion c
that the interpretation to Section 27(b) of the Act requires fresh indigenous
consideration rather than relying on foreign jurisprudence.
8. First a word on interpretati ')n, before we indulge ourselves in
the legal discussion. As the interpretative exercise, as this case, involves
various equitable facets 1, literal interpretation might not be conclusive. It D
should be noted that an interpretation should sub-serve the intent and
purpose of the statutory provision. Therefore we would have to look
beyond the plain and simple meaning, to extract the intention of the Act
and rationalize the fining policy under Section 27 (b) of the Act.
9. It is well settled that the Competition Act, 2002 is a regulatory E
legislation enacted to maintain free market so that the Adam Smith's
concept of invincible hands operate unhindered in the background. 2
Further it is clear from the Statement of objects and reason that this law
was foreseen as a tool against concentration of unjust monopolistic
powers at the hands of private individuals which might be detrimental
for freedom of trade. Competition law in India aims to achieve highest F
sustainable levels of economic growth, entrepreneurship, employment,
higher standards of living for citizens, protect economic rights for just,
equitable, inclusive and sustainable economic and social development,
promote economic democracy, and support good governance by
restricting rent seeking practices. Therefore an interpretation should be G
provided which is in consonance with the aforesaid objectives.
10. At this point, I would like to emphasize on the usage of the
phrase 'as it may deem.fit' as occurring under Section 27 of the Act. At
' Such as proportionality.
2
CCI v. SAIL, (20IO) IO sec 744
H
980 SUPREME COURT REPORTS [2017) 5 S.C.R.

A the outset this phrase is indicative of the discretionary power provided

for the fining authority under the Act. As the law abhors absolute power
and arbitrary discretion, this discretion provided under Section 27 needs
to be regulated and guided so that there is uniformity and stability with
respect to imposition of penalty. This discretion should be governed by
rnle of law and not by arbitrary, vague or fanciful considerations. Here
B
we may deal with two judgments which may be helpful in deciding the
concerned issue. In Dilip N. Shroff v. Joint CIT', this Courtwhile dealing
with the imposition of the penalty has observed that-
The legal history of section 271 ( 1)( c) of the Act traced from the
1922 Act prima facie shows that the Explanations were applicable
c to both the parts. However, each case must be considered on its
own facts. The role of the Explanation having regard to the
principle of statutory interpretation must be borne in mind before
interpreting the aforementioned provisions. Clause (c) of sub-
section (1) of section 271 categorically states that the penalty
D would be leviable if the assessee conceals the particulars of his
income or furnishes inaccurate particulars thereof. By reason of
such concealment or furnishing of inaccurate particulars alone,
the assessee does not ipso facto become liable for penalty.
Imposition of penalty is not automatic. Levv of penaltv is
not only discretionary in nature but such discretion is
E required to be exercised on the part of the Assessing
Officer keeping the relevant factors in mind. Some of those
factors apart from being inherent in the nature of penalty
proceedings as has been noticed in some of the decisions
of this court, inheres on the face of the statutory
F provisions. Penalty proceedings are not to be initiated, as has
been noticed by the Wanchoo Committee, only to harass the
assesse. The approach of the Assessing Officer in this behalf
must be fair and objective."
(emphasis supplied)
G Moreover in the case of Hindustan Steel Ltd. vs. State ofOrissa, 4
this Court made following observations-
" An order imposing penalty for failure to carry out a statutory
obligation is the result of a quasi criminal proceedings and penalty
'c2001i 6 sec 329.
H 4
AIR 1970 SC 253.
 EXCEL CROP CARE LIMITED v. COMPETITION 981
COMMISSION OF INDIA [N. V. RAMANA, J.]

will not ordinarily be imposed unless the party obliged either acted A
deliberately in defiance of law or was guilty of conduct
contumacious or dishonest, or acted in conscious disregard of its
obligation. Penalty will not also be imposed merely because
it is lawful to do so. Whether penalty should be imposed
for failure to perform a statutory obligation is a matter of B
discretion of the authority to be exercised j udiciallv and
on a consideration of all the relevant circumstances. Even
if a minimum penalty is prescribed, the authority competent to
impose the penalty will be justified in refusing to impose penalty,
when there is a technical or venial breach of the provisions of
the Act or where the breach flows from a bona fide belief that c
the offender is not liable to act in the manner prescribed by the
statute."
(emphasis supplied)
11. It should be noted that any penal law imposing punishment is
made for general good of the society. As a part of equitable consideration, D
we should strive to only punish those who deserve it and to the extent of
their guilt. Further it is well established by this Court that the principle
of proportionality requires the fine imposed must not exceed what is
appropriate and necessary for attaining the object pursued. In Coimbatore
District Central Co-operative Bank v. Coimbatore District Central E
Co-operative Bank Employees Assn., 5 this Court has explained the
concept of 'proportionality' in the following manner-
'" proportionality' is a principle where the Court is concerned
with the process, method or manner in which the decision-maker
has ordered his priorities, reached a conclusion or arrived at a F
decision. The very essence of the decision-making consists in
the attribution of relative importance to the factors and
considerations in the case. The doctrine of proportionality thus
steps in focus true nature of exercise- the elaboration of a rule
of permissible priorities. De Smith states that 'proportionality'
involves 'balancing test' and 'necessity test'. Whereas the former G
('balancing test') permits scrutiny of excessive onerous penalties
or infringement ofrights or interests and a manifest imbalance
ofrelevant considerations, the latter ('necessity teat') requires
infringement of human rights to the least restrictive alternative'
'(200?) 4 sec 699. H
982 SUPREME COURT REPORTS [2017) 5 S.C.R.

A In consonance of established jurisprudence, the principle of

proportionality needs to be imbibed into any penalty imposed under
Section 27 of the Act. Otherwise excessively high fines may over-deter,
by discouraging potential investors, which is not the intention of the Act.
Therefore the fine under Section 27(b) of the Act should be determined
on the basis of the relevant turnover. In light of the above discussion a
B
two step calculation has to be followed while imposing the penalty under
Section 27 of the Act.
STEP 1: DETERMINATION OF RELEVANT TURNOVER.
12. At this point of time it needs to be clarified that relevant
c turnover is the entity's turnover pertaining to products and services that
have been affected by such contravention. The aforesaid definition is
not exhaustive. The authority should have regard to the entity's audited
financial statements. Where audited financial statements are not available,
the Commission may consider any other reliable records reflecting the
entity's relevant turnover or estimate the relevant turnover based on
D available information. However the Tribunal is free to consider facts
and circumstances of a particular case to calculate relevant turnover as
and when it is seized with such matter.
STEP 2: DETERMINATION OF APPROPRIATE PERCENTAGE OF PENALTY BASED
ON AGGRAVATING AND MITIGATING CIRCUMSTANCES.
E
13. After such initial determination of relevant turnover,
commission may consider appropriate percentage, as the case may be,
by taking into consideration nature, gravity, extent of the contravention,
role played by the infringer (ringleader? Follower?), the duration of
participation, the intensity of participation, loss or damage suffered as a
F result of such contravention, market circumstances in which tht:
contravention took place, nature of the product, market share of the
entity, barriers to entry in the market, nature of involvement of the
company, bona fides of the company, profit derived from the contravention
etc. These factors are only illustrative for the tribunal to take into
G consideration while imposing appropriate percentage of penalty.
14. At the cost ofrepetition it should be noted that starting point
of determination of appropriate penalty should be to determine relevant
turnover and thereafter the tribunal should calculate appropriate
percentage of penalty based on facts and circumstances of the case
taking into consideration various factors while dete1mining the quantum.
H
 EXCEL CROP CARE LIMITED v. COMPETITION 983
COMMISSION OF INDIA [N. V. RAMANA, J.]

But such penalty should not be more than the overall cap of 10% of the A
entity's relevant turnover. Such interpretation of Section 27 (b) of the
Act, wherein the discretion of the commission is guided by principles
established by law would sub-serve the intention of the enactment.
15. Lastly, I am of the opinion that the penalty imposed by
COMPAT is appropriate in this case at hand and requires no further B
interference.
16. These appeals are, accordingly, disposed of in the above terms.

Kalpana K. Tripathy Appeals disposed of.