Delhi High Court

Ardeshir B.Cursetjee & Sons Ltd. vs Inland Waterways Authority Of ... on 5 October, 2010

Author: S. Muralidhar

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 				W.P.(C) No. 4155 of 2008
	
						 Reserved on:  September 21, 2010
						 Decision on :  October 5, 2010

	ARDESHIR B.CURSETJEE & SONS LTD.                  ..... Petitioner
Through:   Mr. Rajiv Nayar, Senior Advocate with 
       Mr. Rishi Agrawal, Advocate. 

			versus

	INLAND WATERWAYS AUTHORITY OF INDIA & ANR                
       ..... Respondents
Through:   Mr. Alok K. Aggarwal and 
Mr. Saurabh Mishra, Advocates.
Ms. Maneesha Dhir, Ms. Geeta Sharma 
and Mr. K.P.S. Kohli, Advocates 
for R-2. 
	
	 CORAM:   JUSTICE S. MURALIDHAR

  	 1. Whether Reporters of local papers may be 
	     allowed to see the judgment?             			  No		  	2. To be referred to the Reporter or not?          	 	  Yes
  	3. Whether the judgment should be reported in Digest?  Yes

                        		   JUDGMENT

05.10.2010

1. The challenge in this writ petition is to a decision dated 26th November, 2007 of the Chairman, Inland Waterways Authority of India (IWAI), Respondent No. 1 herein, rejecting the claim of the Petitioner and the ICICI Bank under the Loan Interest Subsidy Scheme (LISS) in respect of two new imported vessels of the Petitioner - ABC-XIX and ABC-XX. A further direction is sought to the IWAI to sanction and release the interest subsidy.

Background facts

2. The background to the present petition is that the Ministry of Shipping and Transport (MoST), Inland Water Transport Directorate, Government of India issued a Notification dated 11th January, 1983 announcing certain modifications in the LISS for Inland Waterways Transport (IWT). Loan interest subsidy was admissible for:

acquisition of new country boats;

mechanisation of existing craft including country boats;

acquisition of new dumb barges;

acquisition of new mechanized vessels; and acquisition of new high-powered tugs.

3. It was made clear that no loan will be granted for acquisition of second-hand mechanised vessels or any other category of the second-hand vessels. Under Clause (iv) of the Notification, it was stated that the loans for items (b) to (e) above would be only for vessels which are engaged in inland waterways transportation and have been or will be registered under the Inland Vessels Act, 1917 (IVA). It was made clear that vessels not been/cannot be registered under the IVA will be ineligible to get loan under this scheme. The lending institutions had to ensure that the vessels for which loans have been granted by them under LISS were registered by the owner as an inland vessel under the IVA as per the undertakings given by the party at the time of granting such loans. The lending institution had to further ensure that a photocopy of the IVA Registration Certificate is sent to the Ministry within 60 days of commissioning the vessels in support of the claim for interest subsidy under the LISS.

4. On 26th February 1997, the Petitioner wrote to the MoST regarding the acquisition by it of two barges from abroad for a price of USD 6.1 million each. It was explained that in order to meet the obligation arising from a contract with Fertilisers and Chemicals Travancore Limited (FACT), in terms of which barges had to be specially designed for transportation of Ammonia, the aforementioned had to be imported at a cost which according to the Petitioner compared favourably with the price quoted by Indian ship makers. The Petitioner requested urgent processing of its application for import of the aforementioned two barges.

5. On 18th March 1997, the MoST approved the Petitioners acquisition of the two new Ammonia Gas Carrier barges from abroad. The MoST imposed a condition that the Petitioner must furnish two valuation certificates each from two international reputed valuers and obtain from the Directorate General of Shipping (DGS) an approval as to the reasonableness of the price. On 26th March 1997, the Petitioner applied to the DGS for approval. By a certificate dated 15th April 1997, the DGS approved the technical aspects of the two vessels and on 23rd April 1997, the DGS approved the price for each of the barges at USD 6.1 million as being reasonable.

6. The Petitioner states that the two imported vessels, ABC-XIX and ABC-XX, were constructed at Dubai. Certificates were issued for one voyage under tow from Sharjah to Cochin. On 2nd March 1998, the two vessels were delivered to the Petitioner at Cochin. On 19th/20th March 1998, in compliance with the direction of the MoST, the Petitioner applied for registration of the two vessels. Annexed to the petition are photocopies of the Certificates of Registration dated 19th March 1998 and 20th March 1998 issued by the Registrar of Shipping, Mercantile Marine Department of MoST in respect of ABC-XX and ABC-XIX respectively under the Coasting Vessels Act 1838 (CVA). The Petitioner states that on 21st March 1998, a certificate was issued by the Chief Inspector of Boats, Cochin permitting the two vessels for navigation on all public canals for a period of six months. The said certificate was thereafter reviewed periodically till a certificate was issued on 12th May 2000 in respect of the two vessels under the IVA.

7. The Petitioner states that the application for registration of the two barges under the IVA was made to the Captain of Ports, Govt. of Goa, Panaji on 21st March 1998 in compliance with the technical clearance granted by the DGS on 15th April 1997. On 3rd April 1998, the Mercantile Marine Department of the MosT had granted its no objection for the registration of the two barges under the IVA.

8. On 21st May 1999, the MoST issued a fresh LISS, 1999 superseding the previous LISS of 1983. An important change under the LISS, 1999 was that it was meant to also cover second-hand vessels and jumboisation of existing vessels. According to the Petitioner, the availability of the loan interest subsidy for the two new vessels in terms of LISS, 1983 continued under LISS, 1999.

9. On 24th March 2000, the Petitioners bankers, ICICI Bank, wrote to the MoST stating that the Petitioner satisfied the conditions of LISS and that subsidy may accordingly be granted to it. On 15th/18th February 2002, the IWAI rejected the Petitioners application for subsidy citing Clause V (e) of the LISS, 1999 which concerned indigenous/imported second-hand vessels. The reason indicated in the said letter reads as under:

As per Clause V (e) of the Revised Loan Interest Subsidy Scheme regarding category of vessels eligible for interest subsidy, acquisition of only indigenous/imported second hand vessel with functional life of at least 10 years as certified by an approved classification agency, is eligible. Therefore, both the above vessels are not found eligible for payment of interest subsidy and competent authority has decided to reject the claims.

10. The Petitioner then wrote to the MoST on 23rd July 2002 requesting it to review the Petitioners case. A reminder was sent on 5th November, 2003 and then again on 19th November 2004. Thereafter on 9th August 2005, the Petitioner filed Writ Petition(C) No. 13028 of 2005 in this Court. On 3rd July 2007, while allowing the writ petition and setting aside the decision dated 15th/18th February 2002, a learned Single Judge of this Court issued the following directions:

Accordingly, the impugned order dated 15th/18th February 2002 is set aside. However, the petitioner is directed to furnish a fresh claim routed through ICICI Limited to the Respondent No. 1 (Inland Waterways Authority of India), who shall then process the claim in accordance with the applicable scheme and take an appropriate decision on merits. The fresh claims would be furnished by the petitioner, as indicated above within four weeks from today and the decision shall be taken by the Respondent No. 1 within four months thereafter.

11. On 30th July 2007, the Petitioner applied to the IWAI through the ICICI Bank. Thereafter, the impugned order dated 26th November 2007 came to be passed by the IWAI rejecting the Petitioners claim. It was noticed that the Petitioner had procured the new vessels and got them registered under the CVA in the first instance. Further under the LISS 1999, the claim for subsidy had to be lodged by the bank concerned and not by the importer. Therefore, there was no privity of contract between the importer and the IWAI. There was no rationale in procuring the two vessels at a cost which was six times more than the vessels procured earlier by the Petitioner for the same purpose.

12. The Petitioner has assailed the above decision on several grounds. It is contended that the earlier rejection order dated 15th/18th February 2002 was only on the ground that LISS, 1999 applied to imported second-hand vessels and not to imported new vessels. It is submitted that this was plainly erroneous and this Court set aside the earlier decision of the IWAI based on the same reasoning. Further, no new grounds could be advanced to reject the Petitioners claim. The cost of the procurement of the vessels was not a relevant criteria for determining whether the Petitioner was eligible for the loan interest subsidy under the LISS.

13. It is submitted that both under the LISS, 1983 as well as the revised LISS, 1999, the Petitioner was fully eligible for grant of the loan interest subsidy. It is urged that there was no such bar on granting loan interest subsidy to new imported vessels under the LISS, 1983 or LISS, 1999. Inasmuch as the Petitioner did have a registration under the IVA and the barges were only used for inland water transport, the fact that the initial registration was made under the CVA would make no difference.

14. In reply to the above submissions, it is stated by the MoST that under Clause V (e), the interest subsidy would be available only in the event of acquisition of indigenous/imported second hand vessels with a functional life of at least 10 years. It is stated that since the vessels of the Petitioner are new imported vessels, they are not eligible for loan interest subsidy. It is submitted that no satisfactory explanation was given by the Petitioner for importing new vessels which were six times more expensive than the indigenous built vessels. It is submitted that the registration of the vessels initially under the CVA and subsequently under the IVA would be against the spirit, object and purpose of the revised LISS, 1999 which was primarily to encourage transportation on Inland Waterways. It is further pointed out that the claim under the revised LISS can only be made by the ICICI Bank.

15. A reference is also made to the Group constituted by the MoST on 11th November 2003, which submitted its report on outstanding policy issues pertaining to the LISS. In particular reference is made to para 4.12 and Clause 5.1 of the said report, which read as under:

4.12. Area of operation of vessels beyond inland waters-eligibility criterion for availing interest subsidy.

4.12.1 As per the clause XXII of LISS (1983), the vessel which are maintained for port operations within the fair and foul weather of inland water limits under the Inland Vessels Act, 1917 and for which special dispensation has been obtained from the Mercantile Marine Department to proceed beyond the limits of inland waters and up to port limits will not be eligible to get loan under this scheme. However, the vessels registered under I.V. Act and are used for transporting men and/or material from inland waters as defined under the Inland Vessels Act and have to go to the ports limit will continue to be eligible to get loan under this scheme.

xxx

V. CONCLUSIONS

5.1    FI/Banks were not eligible for interest subsidy for financing acquisition of new imported vessels under both LISS (1983) and LISS.

16. The Petitioners submission in its rejoinder is that the purpose of LISS 1999 was not only to encourage vessel building activity within the country. It is pointed out that Clause V(c) of the LISS 1999 makes no distinction between indigenous or imported vessels in the case of new mechanised vessels. It is denied that the Petitioner registered the vessels under the IVA with the sole purpose of availing the benefit under the LISS 1999. The explanation given is that the exchange rate of the dollar against the rupees was only 1 US $ to 12.88 INR, much lower than what it is today. It is also evident that the price of the vessels computed at the prevailing exchange rates was much lower originally until it got escalated as a result of supervening and special circumstances including force majeure due to labour travels. Therefore, the reason for the registration of the vessels under IVA was the fact that the old scheme categorized the Petitioners vessels as properly falling under the head new mechanized vessels.

Submissions of counsel

17. Mr. Rajiv Nayar, learned Senior counsel appearing for the Petitioner reiterated most of the above submissions. He placed reliance on the earlier order dated 3rd July 2007 passed by this Court which according to him implicitly negatived the only objection raised by the IWAI for rejecting the Petitioners claim. This was that the Petitioners vessels were not second-hand imported vessels and were, therefore, not eligible for grant of subsidy under the LISS 1999. No other ground could now be put forth by the IWAI for rejecting the claim. Learned Senior counsel placed reliance upon the judgment of the Supreme Court in Union of India vs. Hansoli Devi (2002) 7 SCC 273 and submitted that the word indigenous could not be pre-fixed to the words new vessel in the LISS 1983 or LISS 1999 to exclude new imported vessels from eligibility for the benefit thereunder. Mr.Nayar submitted that there was no delay in making the claim since pursuant to this Courts order dated 3rd July 2007 a fresh claim had to be filed by the Petitioner which had to be considered as such by the IWAI in terms of the directions issued by this Court. Therefore, the claim could not be rejected on the ground that it was not made within six months of the sanctioning of the loan. Further the LISS 1999 was made applicable till 30th March 2002 and, therefore, the claim was not time-barred. While not denying that the IVA registration was granted on 12th May 2000, learned Senior counsel pointed out that on 21st March 1998 itself the port authorities had provided the inspection certificate and allowed the plying of the vessels within the Inland Waterways. On 23rd February 2000, the Government of Goa had, while referring to the Petitioners application for registration under the IVA Act, informed that it had agreed to issue the IVA registration certificate. The certificate issued by the Government of Goa was included with the claim made on 24th March 2000.

18. Mr. Alok Agarwal, learned counsel appearing for the IWAI submitted that the fact that the two vessels were newly imported vessels was not the only ground on which the claim of the Petitioner was rejected. Although, the order dated 15th/18th February 2002 of the IWAI did not expressly say so, the order dated 3rd July 2007 of this Court made a note of the submission of learned counsel for the IWAI that there were other grounds of rejection as well. In particular, he pointed out that the photocopies of the certificates of registration of the two vessels under the IVA had to be sent to the MoST within 60 days of the commissioning of each vessel. This was essentially to ensure that the imported vessels for which LISS benefit was availed of would be used only for inland waterways transport. Admittedly, the initial registration for two vessels was under the CVA and it was only on 20th May 2000 that the two vessels were registered under the IVA. He pointed out that even at the time of the grant of loan the bank had to ensure that the loan had been granted in respect of a vessel registered under the IVA. The scheme was such that the bank would grant the loan at a concessional rate and the difference between that concessional rate and the bank rate would be provided by the MoST as subsidy to the bank. Therefore, all the formalities had to be completed in respect of the two vessels even at the time of the grant of loan and not later. It is not at all clear that at the time of initial grant of the loan whether it was made under the LISS or not. It could well have been a commercial loan granted by the ICICI bank for the vessels which later was sought to be converted into a loan under the LISS. This is not permissible in terms of the LISS.

Availability of benefit under LISS, 1999 to new imported vessels

19. The first issue to be considered is whether the Respondents are right in their contention that the LISS 1999 benefit is not available to new imported vessels. Clause V(c) and V (e) of LISS 1999 which are relevant for the present purposes read as under:

V. CATEGORY OF VESSELS ELIGIBLE FOR INTEREST SUBSIDY.

Interest subsidy will be available for any of the under mentioned purposes and category of vessels:

xxx

(c) Acquisition of new mechanised vessels and modernisation                                                                                                                                  including conversion/modification/jumboisation of mechanised vessels/dumb barges;  

xxx

(e) Acquisition of indigenous, imported second hand vessel with functional life of at least ten years as certified by an approved classification agency.

20. The learned Senior counsel appearing for the Petitioner is right in his submission that the benefit under the LISS 1999 was available both to new mechanised indigenous, and imported second-hand vessels. Neither under the LISS 1983 nor under the LISS 1999 was there any requirement that the new mechanised vessels that had been acquired had to be only indigenous mechanised and not imported vessels. There is no ambiguity in this regard in the language of Clause V (c) of LISS 1999. Therefore, the ground on which the claim of the Petitioner was initially rejected by the order dated 15th/18th February 2002 that only indigenous/ imported second-hand vessels were eligible was not a valid one.

IWAI not precluded from rejecting the Petitioners claim on new grounds

21. The second issue to be considered is that whether any of the reasons given in the impugned order dated 26th November 2007 of the IWAI to reject the Petitioners claim under LISS 1999 are tenable in law. At the outset, it must be stated that the interpretation placed by the learned Senior counsel for the Petitioner on the order dated 3rd July 2007 of this Court is perhaps not correct. There is nothing in the said order which precluded the IWAI from rejecting the Petitioners claim on other grounds which may not have been mentioned in the first order dated 15th/18th February 2002. The observation in paras 4 and 5 of the order of this Court dated 3rd July 2007 reads as under:

4. The learned counsel for the Petitioner contended that Clause V (e) of the revised Loan Interest Subsidy Scheme was not at all applicable to their case because their vessels were not second hand vessels but were new vessels. According to him, they were covered under Clause V(c) of the said Scheme. It appears that the Respondent No.1 has only considered Clause V (e) as the applicable clause and since the Petitioners case clearly was not within that Clause, it was rejected. An order has to be supported or rejected on the basis of the reasons indicated in the order itself. This is a well settled principle of law. According to the learned counsel for the Respondents, this was not only the reason for rejection of the claim and that there are other reasons also for which he requested this Court to examine the background of the matter. Unfortunately, as already indicated above, the order stands or falls on the basis of the reasons given therein. This order, in my view, is inadequate and cannot stand the test of reasons or logic. The order has to go.

5. Accordingly, the impugned order dated15/18.2.2002 is set aside. However, the Petitioner is directed to furnish a fresh claim routed through ICICI Limited to the Respondent No.1 (Inland Waterways Authority of India), who shall then process the claim in accordance with the applicable Scheme and take an appropriate decision on merits. The fresh claims would be furnished by the Petitioner, as indicated above within four weeks from today and the decision shall be taken by the Respondent No.1 within four months thereafter. (emphasis supplied)

22. It is clear that the fresh claim to be submitted by the Petitioner had to be processed in accordance with the applicable scheme and thereafter the IWAI had to take an appropriate decision on merits. In view of the fact that the claim was decided afresh pursuant to the order dated 13th March 2007 passed by this Court, the plea of limitation of the Respondents to reject the claim of the Petitioner on any other ground cannot possibly be sustained.

23. Next to be examined is the tenability of the substantive reasons given by the IWAI to reject the Petitioners claim. The impugned order dated 26th November 2007 notices that the decisions taken on the file while rejecting the original claim were as under:

(a) New imported vessels are not eligible for grant of interest subsidy under LISS (1999).

(b)     Copies of Registration Certificates were to be forwarded to IWAI within six months of the commissioning of the vessels. However, in the present case, both the vessels were registered on 12.05.2000 but the copies of Registration Certificates, were received in IWAI on 14.05.2001.

(c)  Two vessels of similar specifications purchased indigenously by the same party in 1992 cost only Rs. 4.52 crores each whereas the present imported vessels cost Rs. 26.3. crores each, i.e. costing about six times of the previous ones. 


Registration of inland vessel not in compliance with the LISS 1999

24. The impugned order also notes that the Petitioner procured the newly imported vessels and got them first registered with the CVA as per the LISS 1999 whereas they should have been registered under IVA. The fact of the matter is that both under the LISS 1983 as well as LISS 1999 one of the essential conditions was that the vessels for which loans have been granted by the bank had to be registered by the owner under the IVA. What it meant was that the lending institution, even while granting loan for the acquisition of a new imported vessel, had to ensure that the imported vessel would on being commissioned be registered as an inland vessel under the IVA. Secondly, this had to be ensured even at the time of granting such loan. An undertaking had to be taken from the importer at the time of granting such loan to the effect that on the vessels arriving in India he would get them registered as inland vessels under the IVA.

Requirement of sending a copy of registration certificate to MoST

25. The second important requirement is that a photocopy of the registration certificate had to be sent to the MoST within 60 days in support of the claim for interest subsidy under the LISS. The Petitioners position as far as the vessels registration is concerned, is that the vessels arrived in India on 20th March 1998. They were commissioned and registered under the CVA and not under the IVA. The LISS of 1983 as well as LISS 1999 require the registration of the vessels to be made under the IVA and this is required to be ensured by the lending institution even at the time of granting the loan. This explains the logic of requiring the lending institution to forward a copy of the certificate of registration of the vessel under the IVA to the MoST within 60 days of the commissioning of the imported vessel. It is nobodys case that the ICICI Bank ensured compliance with the above essential condition for extending the LISS benefit to the Petitioner.

Not clear if Petitioner intended to avail of the benefit of LISS initially

26. The second point urged by the IWAI to reject the Petitioners claim is also not without merit. There is nothing to indicate that while granting loan to the Petitioner, the ICICI Bank did so under the LISS. Also, it is not clear what the subsidised rate of interest was on which the loan was granted and whether even at the time of granting such loan, it was made clear to the Petitioner that the registration had to be done of the vessel to be imported as an inland vessel under the IVA in order to avail the benefit under the LISS. Neither the Petitioner nor the ICICI Bank have been able to show that the Petitioner even at the time of import of the two vessels intended to avail the benefit of the LISS. To this Court it appears that the Petitioner has not satisfied the essential conditionalities for availment of subsidy under LISS 1999. These were also the reasons contained in the impugned order dated 26th November 2007 rejecting the Petitioners claim. No error can be found in the said impugned decision of the IWAI.

Conclusion

27. The petition is accordingly dismissed with costs of ` 10,000/- of which ` 5,000/- will be paid to the Respondent No. 1 and the remaining ` 5,000/-will be paid to the Respondent No. 2 by the Petitioner within four weeks.

S. MURALIDHAR, J.

OCTOBER 5, 2010 dk ?

W.P.(C) No. 4155 of 2008 page ? PAGE ?1? of ? NUMPAGES ?15?

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