2004 (4) TMI 342 - SC - Indian Laws

Supreme Court overrules U.P. Rashtriya Chini Mill case on territorial jurisdiction for writ petitions under Article 226(2)

KUSUM INGOTS & ALLOYS LTD. Versus UNION OF INDIA

The SC clarified territorial jurisdiction for writ petitions, overruling its earlier decision in U.P. Rashtriya Chini Mill case. The Court held that mere ... Maintainability of writ petition - Territorial jurisdiction - situs of office of the Parliament​​​​​​​ - Words and Phrases - “Cause of action” - distinction between a legislation and executive action - Application of the doctrine of Forum Conveniens - HELD THAT:- The view taken by this Court in U.P. Rashtriya Chini Mill Adhikari Parishad, Lucknow [1995 (7) TMI 423 - SUPREME COURT], that situs of issue of an order or notification by the Government would come within the meaning of expression ‘cases arising’ in clause 14 of the (Amalgamation) Order is not a correct view of law for the reason hereafter stated and to that extent the said decision is overruled. In fact, a legislation, it is trite, is not confined to a statute enacted by the Parliament or legislature of a State, which would include delegated legislation and subordinate legislation or an executive order made by the Union of India, State or any other statutory authority. In a case where the field is not covered by any statutory rule, executive instruction issued in this behalf shall also come with within the purview thereof. Situs of office of the Parliament, Legislature of a State or authorities empowered to make subordinate legislation would not by itself constitute any cause of action or cases arising. In other words, framing of a statute, statutory rule or issue of an executive order or instruction would not confer jurisdiction upon a court only because of the situs of the office of the maker thereof. When an order, however, is passed by a Court or Tribunal or an executive authority whether under provisions of a statute or otherwise, a part of cause of action arises at that place. Even in a given case, when the original authority is constituted at one place and the appellate authority is constituted at another, a writ petition would be maintainable at both the places. In other words as order of the appellate authority constitutes a part of cause of action, a writ petition would be maintainable in the High Court within whose jurisdiction it is situate having regard to the fact that the order of the appellate authority is also required to be set aside and as the order of the original authority merges with that of the appellate authority. In view of clause 2 of Article 226 of the Constitution of India now if a part of cause of action arises outside the jurisdiction of the High Court, it would have jurisdiction to issue a writ. Forum Conveniens : We must, however, remind ourselves that even if a small part of cause of action arises within the territorial jurisdiction of the High Court, the same by itself may not be considered to be a determinative factor compelling the High Court to decide the matter on merit. In appropriate cases, the Court may refuse to exercise its discretionary jurisdiction by invoking the doctrine of forum conveniens. Thus, there is no merit in this appeal which is dismissed accordingly. 1. ISSUES PRESENTED and CONSIDEREDThe core legal questions considered by the Court were:Whether the seat of the Parliament or the Legislature of a State is a relevant factor in determining the territorial jurisdiction of a High Court to entertain a writ petition under Article 226 of the Constitution of India.What constitutes the 'cause of action' for the purpose of conferring territorial jurisdiction on a High Court under Article 226(2) of the Constitution and Section 20(c) of the Code of Civil Procedure.Whether the mere fact that a writ petition challenges the constitutionality of a parliamentary legislation confers jurisdiction on the High Court at the seat of the Parliament (Delhi High Court in this case).Whether the situs of the office of the authority enacting legislation or issuing subordinate legislation or executive orders is determinative of jurisdiction.The applicability of the doctrine of forum conveniens in cases where a part of the cause of action arises within the territorial jurisdiction of a High Court.2. ISSUE-WISE DETAILED ANALYSISIssue 1: Relevance of the seat of Parliament or State Legislature in determining territorial jurisdiction under Article 226Legal framework and precedents: Article 226(2) confers jurisdiction on any High Court where the cause of action, wholly or in part, arises, notwithstanding the seat of the government or authority. Section 20(c) of the Code of Civil Procedure similarly provides that suits shall be instituted where the cause of action arises. The Court referred to decisions such as Abdul Kafi Khan v. Union of India and Others, which held that the seat of the Union of India does not automatically confer jurisdiction on the Delhi High Court.Court's interpretation and reasoning: The Court held that the mere location of the Parliament or Legislature does not confer jurisdiction on the High Court at that seat. The situs of the office enacting legislation or subordinate legislation is not by itself a cause of action or a sufficient basis for jurisdiction. The Court overruled the contrary view expressed in U.P. Rashtriya Chini Mill Adhikari Parishad, Lucknow v. State of U.P. to the extent it suggested that the situs of issue of an order or notification would confer jurisdiction.Application of law to facts: The appellant's writ petition challenging the constitutionality of the Securitisation and Reconstruction of Financial Assets and Enforcement of Security Interest Act, 2002, was filed in the Delhi High Court on the ground that the Parliament sits in Delhi. The Court rejected this submission, holding that the cause of action must arise within the territorial jurisdiction of the High Court, not merely because the legislation was enacted in Delhi.Conclusion: The seat of the Parliament or Legislature is not a relevant factor for territorial jurisdiction under Article 226.Issue 2: Definition and scope of 'cause of action' for territorial jurisdiction under Article 226(2)Legal framework and precedents: The Court extensively analyzed the meaning of cause of action, drawing from judicial interpretations including Mussummat Chand Kour v. Partap Singh, Oil & Natural Gas Commission v. Utpal Kumar Basu, State of Rajasthan v. M/s. Swaika Properties, and National Textile Corpn. Ltd. v. M/s. Haribox Swalram. Cause of action was defined as the bundle of material or integral facts necessary for the plaintiff to prove to obtain relief. It is distinct from the relief sought or the defendant's defense.Court's interpretation and reasoning: The Court emphasized that for jurisdiction under Article 226(2), even a small fraction of the cause of action arising within the territorial jurisdiction suffices. However, not all facts pleaded constitute cause of action; only integral facts that have a nexus to the relief sought are relevant. The Court rejected the notion that the mere passing of legislation or service of notice is automatically part of the cause of action unless it is integral to the dispute.Key evidence and findings: The appellant's cause of action arose from the loan agreement and the notice for repayment issued by the Bhopal branch of the bank, all facts occurring outside Delhi. The Court found no integral facts arising within the Delhi High Court's jurisdiction.Application of law to facts: The Court held that the cause of action did not arise in Delhi, and thus the Delhi High Court lacked territorial jurisdiction to entertain the writ petition.Treatment of competing arguments: The appellant argued that the constitutional challenge to a parliamentary act conferred jurisdiction in Delhi. The Court rejected this, emphasizing that constitutional questions cannot be decided in vacuum and must be linked to a cause of action arising within the Court's jurisdiction.Conclusion: Cause of action must have a territorial nexus with the High Court's jurisdiction; mere constitutional challenge to legislation enacted elsewhere does not suffice.Issue 3: Whether constitutionality of a parliamentary act alone confers jurisdictionLegal framework and precedents: The Court noted that legislation, once enacted and published, applies throughout India unless excluded. However, a writ petition challenging constitutionality must be supported by a cause of action arising within the territorial jurisdiction. The Court referred to prior rulings establishing that courts will not entertain constitutional questions in vacuum.Court's interpretation and reasoning: The Court clarified that passing of legislation by itself does not create a cause of action or confer jurisdiction. The cause of action arises only when the provisions of the Act are implemented and cause civil or legal injury to the petitioner.Application of law to facts: The appellant's petition was premature and lacked a cause of action within Delhi, as the loan and notice were connected to Bhopal.Conclusion: Constitutionality challenges must be linked to cause of action arising within the territorial jurisdiction; mere enactment of legislation does not confer jurisdiction.Issue 4: Relevance of situs of office of authorities enacting subordinate legislation or issuing notificationsLegal framework and precedents: The Court examined whether the location of offices enacting subordinate legislation or issuing executive orders confers jurisdiction. It referred to Nasiruddin v. State Transport Appellate Tribunal and U.P. Rashtriya Chini Mill Adhikari Parishad, and overruled the latter's view to the extent it suggested situs alone confers jurisdiction.Court's interpretation and reasoning: The Court held that the situs of the office of the authority making subordinate legislation or executive orders is not determinative of jurisdiction unless an order passed by such authority forms a part of the cause of action. The framing or issuance of legislation or notifications does not in itself constitute cause of action.Application of law to facts: The appellant's reliance on the situs of the Parliament in Delhi was rejected as insufficient to confer jurisdiction.Conclusion: Situs of office of legislative or executive authority is not relevant for jurisdiction unless an order passed by such authority forms part of the cause of action.Issue 5: Application of doctrine of forum conveniens in writ petitions under Article 226Legal framework and precedents: The Court acknowledged that even if a part of the cause of action arises within a High Court's jurisdiction, the Court may refuse to exercise jurisdiction invoking the doctrine of forum conveniens. Precedents cited include Bhagar Singh Bagga v. Dewan Jagbir Sawhany, Mandal Jalan v. Madanlal, Bharat Coking Coal Ltd. v. M/s. Jharia Talkies & Cold Storage Pvt. Ltd., and others.Court's interpretation and reasoning: The Court emphasized that jurisdiction under Article 226 is discretionary and the Court may decline jurisdiction if another forum is more appropriate, even if a part of the cause of action arises within its territory.Application of law to facts: Although not directly applied in this case, the principle was noted as a caution that territorial jurisdiction alone does not compel exercise of writ jurisdiction.Conclusion: The doctrine of forum conveniens is applicable to writ jurisdiction and may be invoked to decline jurisdiction despite territorial nexus.3. SIGNIFICANT HOLDINGS'The seat of the Parliament or the Legislature of a State is not a relevant factor for determining the territorial jurisdiction of a High Court to entertain a writ petition under Article 226 of the Constitution of India.''Passing of a legislation by itself does not confer any right to file a writ petition unless a cause of action arises therefor.''Cause of action implies the integral or material facts which must be proved by the petitioner to obtain relief; the mere framing or enactment of legislation or issue of notification does not constitute cause of action.''Clause (2) of Article 226 of the Constitution of India confers jurisdiction on a High Court if any part of the cause of action arises within its territorial jurisdiction, notwithstanding the location of the government or authority.''The situs of the office of the authority enacting legislation or issuing subordinate legislation or executive orders does not by itself confer jurisdiction on a High Court.''The doctrine of forum conveniens is applicable to writ jurisdiction and may be invoked to refuse exercise of jurisdiction even if a part of the cause of action arises within the territorial jurisdiction.''A writ court would not determine a constitutional question in vacuum; there must be a cause of action arising within the territorial jurisdiction.''The decision in U.P. Rashtriya Chini Mill Adhikari Parishad, Lucknow v. State of U.P. to the extent it holds that situs of issue of an order or notification confers jurisdiction is overruled.''In cases where an order is passed by an appellate authority situated in a different jurisdiction, a writ petition may be maintainable in either jurisdiction as the order of the appellate authority forms part of the cause of action.'