
Aadrikaa Legal Services (ALS)- Law I Litigation I Arbitration
Date: 24.09.2026
Supreme Court: State Cannot Raise New Defence at Award-Challenge Stage When It Was Never Taken Before Arbitrator
This Short Article has been prepared & written by Arbitrator Shobhit Mallik. The views expressed are based on his interpretation of the law. He can be reached at his email id shobhit.Ica23@gmail.com .

The Supreme Court of India, while deciding a dispute arising from the construction and operation of the Bharatpur bypass in Rajasthan, held that an arbitral tribunal cannot travel beyond its terms of reference and that a contractor cannot recover toll-based compensation for expenditure it never incurred.
The Court recognised the contractor’s contractual right to collect tolls on the BharatpurβDeeg section of the project. However, it also found that the contractor had failed to execute the second phase of the project and that this failure was material to determining its financial entitlement.
Accordingly, the Supreme Court referred two issues back to the arbitral tribunal for reconsideration. It limited the contractor’s immediate entitlement to βΉ26.34 lakh, with 10% interest, for the delay in issuing the traffic-restriction notification, subject to adjustment or prior payment.
Background: The Bharatpur Bypass BOT Project
- The dispute originated in September 1997, when the Public Works Department of Rajasthan decided to construct a bypass connecting Bharatpur and Mathura to divert traffic away from the congested market area of Bharatpur.
- The project was awarded on a Build, Operate and Transfer (BOT) basis. It covered approximately 10.85 kilometres, comprising 9.6 kilometres of new construction and 1.25 kilometres of widening and strengthening of the existing BharatpurβDeeg Road.
- MSK Projects submitted a bid of βΉ13.25 crore, which the State accepted in February 1998. The parties subsequently entered into a concession agreement on 19 August 1998, granting the contractor the right to collect tolls during a concession period of 111 months, including construction.
- The contractor completed the bypass on 10 April 2000 and began collecting tolls on 28 April 2000. However, agitation by local residents and difficulties in diverting commercial vehicles through the bypass affected toll collection.
- The State issued a notification dated 1 September 2000 restricting the entry of vehicles into Bharatpur city, with effect from 1 October 2000. The contractor subsequently invoked arbitration, alleging delay in issuing and implementing the notification and disputing its entitlement to collect tolls from vehicles using the BharatpurβDeeg section.
Arbitral Tribunal Awarded βΉ9.90 Crore With 18% Interest
- On 1 December 2003, the arbitral tribunal ruled in favour of MSK Projects.
- It held that the State had delayed issuing and implementing the traffic-restriction notification and that the contractor was entitled to collect tolls from vehicles using the BharatpurβDeeg portion of the road.
- The tribunal directed the State to pay approximately βΉ9.90 crore for losses assessed up to 31 December 2003, together with interest at 18% from that date.
- The State challenged the award under Section 34 of the Arbitration and Conciliation Act, 1996. The District Judge set it aside, holding, among other things, that the concession agreement did not expressly require the State to issue a notification prohibiting vehicles from entering Bharatpur city. The District Judge also reduced the interest rate from 18% to 10%.
- On appeal, the Rajasthan High Court recognised the contractor’s right to collect tolls on the BharatpurβDeeg section but rejected compensation based on an alleged obligation to issue the traffic-diversion notification. It maintained the reduced interest rate. Both parties subsequently approached the Supreme Court.
Arbitrator Cannot Decide Matters Beyond the Reference
- One of the principal questions before the Supreme Court concerned the limits of an arbitral tribunal’s jurisdiction.
- The Court explained that an arbitral tribunal derives its authority from the reference made to it. It cannot materially enlarge that reference or decide matters outside its jurisdiction.
- At the same time, the Court distinguished between an error in interpreting a contract, which may fall within an arbitrator’s jurisdiction, and deciding a matter that the parties never referred to arbitration, which constitutes a jurisdictional error.
- Applying those principles, the Supreme Court noted that Rajasthan had not raised, during arbitration, the defence that it had never agreed to issue the traffic-restriction notification. The dispute framed before the tribunal concerned the delay in issuing and implementing that notification.
- The District Judge and the High Court had therefore erred in deciding the case on a defence that the State had not taken before the arbitral tribunal.
Contractor Entitled to Collect Toll on BharatpurβDeeg Section
- The State separately argued that the 1.25-kilometre BharatpurβDeeg stretch was not part of the tollable project because it was an existing road rather than a newly constructed bypass.
- The Supreme Court rejected that argument.
- It examined the bid documents, traffic-survey data, pre-bid clarifications and concession agreement. These established that the BharatpurβDeeg stretch formed an integral part of the composite project.
- The Court also noted that the contractor had widened and strengthened the existing road. It was not a temporary service road intended to provide free passage during construction.
- Consequently, the contractor’s right to collect tolls from vehicles using this section was upheld.
Toll Collection Must Remain Compensatory
- The judgment also examined the legal character of toll collection.
- Referring to the Indian Tolls Act, 1851 and the applicable statutory notification dated 10 February 1997, the Supreme Court explained that tolls are compensatory in nature. They are intended to recover the costs of constructing and maintaining infrastructure, together with permissible interest and collection expenses.
- The Court emphasised that toll collection cannot become an unrestricted source of revenue unrelated to the costs of the project.
- This distinction was particularly important because MSK Projects had undertaken to execute the project in two phases, but the second phase had never been completed.
Failure to Execute Second Phase Was Material to Compensation
- The project documents contemplated an investment of approximately βΉ10.45 crore in Phase I and βΉ3.55 crore in Phase II.
- The second phase involved repairs, maintenance and laying an additional bitumen layer over the road. The Supreme Court noted that MSK Projects had admittedly not executed this phase.
- The Court further observed that the contractor had recovered its first-phase investment, together with some profit, although the precise amount of toll revenue collected had not been disclosed.
- In these circumstances, the contractor could not claim compensation calculated on the entire projected investment of βΉ13.25 crore when it had not actually incurred the expenditure contemplated for Phase II.
- The State had raised the non-execution of Phase II in its counter-affidavit before the Supreme Court. The contractor responded that the issue had not formed part of the original arbitration proceedings. The Court noted that there was no specific denial of the underlying allegation that the second phase remained unexecuted.
- Although the issue arose after the original arbitral award and could not have been determined within that reference, the Supreme Court considered it necessary to examine its financial consequences to avoid awarding compensation disconnected from the contractor’s actual investment.
Interest Reduced From 18% to 10%
- The contractor also challenged the reduction of interest from 18% to 10%, arguing that the contractual arrangements contemplated a higher interest rate.
- The Supreme Court declined to interfere with the reduced rate.
- Referring to the Interest Act, 1978 and its earlier decisions, the Court explained that interest must be determined with regard to the circumstances of the case and the prevailing economic environment. It noted that interest rates had changed substantially following economic reforms.
- The Court therefore maintained the 10% interest rate fixed by the courts below.
Supreme Court’s Final Decision
The Supreme Court did not restore the original arbitral award of βΉ9.90 crore. Instead, it directed the arbitral tribunal to reconsider two specific questions:
- What amount could the contractor legitimately have recovered from vehicles using the BharatpurβDeeg section?
- What was the effect on the concession agreement as a whole of the contractor’s failure to execute Phase II?
The Court requested the tribunal to decide these questions expeditiously after giving both parties an opportunity to be heard.
It further held that MSK Projects was entitled to βΉ26.34 lakh for the delay in issuing the traffic-restriction notification, together with 10% interest, unless already paid. The amount could also be adjusted in the final accounts.
Both appeals were disposed of without costs.
Legal Significance
The judgment addresses two distinct principles relevant to infrastructure contracts and commercial arbitration.
First, an arbitral tribunal must remain within the scope of the dispute referred to it. Equally, a party cannot ordinarily introduce an entirely new defence at the judicial challenge stage and seek to overturn an award on that basis.
Second, compensation under a BOT concession must be examined in light of the governing contract, statutory framework and expenditure actually incurred. A contractor’s entitlement to collect tolls does not, by itself, establish entitlement to recover the cost of contractual works that were never executed.
The decision also illustrates the distinction between recognising a contractor’s contractual right and determining the amount ultimately payable under that right. In this case, the Supreme Court upheld the right to collect tolls on the disputed road section while leaving the financial consequences of the unexecuted second phase for further adjudication.
Connected Matter
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Source: Supreme Court
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