The Anatomy of a PPA Dispute in India: From Notice to Remedy

Understanding Power Purchase Agreement Disputes in India

The power sector in India has evolved quite a bit lately, and Power Purchase Agreements (PPAs) form the backbone of electricity generation and distribution. These contracts define how electricity generators, whether renewable or conventional, sell power to distribution companies (DISCOMs), ensuring commercial certainty and grid stability. However, as tariffs evolve, renewable targets expand, and regulatory frameworks tighten, power purchase agreement disputes in India have grown both in number and complexity.

A typical PPA dispute resolution in India can arise from multiple fault lines, including delays in project commissioning, disputes over tariff adjustments, curtailment of power by DISCOMs, or claims under the “Change in Law” clause. Each such disagreement can spiral into full-fledged regulatory litigation spanning multiple forums—from State Electricity Regulatory Commissions (SERCs) to the Appellate Tribunal for Electricity (APTEL), and sometimes even the Supreme Court.

This article breaks down the litigation lifecycle of a PPA dispute in India—from the moment a notice is issued, through the maze of jurisdictional forums, to the final remedies available to aggrieved parties.

 

What Triggers PPA Disputes in India?

Disputes under Power Purchase Agreements (PPAs) usually stem from mismatched expectations between generators and distribution licensees (DISCOMs), or from regulatory and operational challenges that disrupt project timelines and commercial viability. 

Below are the most common triggers in PPA disputes in India:

1.Tariff Disputes

Tariff determination is one of the most litigated aspects of any electricity regulatory dispute in India. 

Generators often lock in tariffs through competitive bidding or under cost-plus mechanisms approved by the State Electricity Regulatory Commission (SERC). Conflicts arise when:

• A DISCOM refuses to honour an agreed tariff, citing “unviable rates” or “change in circumstances.”
  
• The generator seeks tariff revision under the Change in Law clause due to new taxes, duties, or policy changes.
  
• Retrospective tariff reductions or renegotiations are attempted by state utilities, often seen in renewable energy PPAs (notably in Andhra Pradesh and Gujarat cases).

2.Commissioning Delays (COD) and Construction Hurdles

The Commercial Operation Date (COD) determines when the project is deemed ready to supply power. Delays in achieving COD, whether due to force majeure, delay in grid connectivity, or financing issues, often lead to disputes. 

DISCOMs may impose Liquidated Damages (LDs) or encash Performance Bank Guarantees (PBGs), while developers may argue that delays were beyond their control, such as late evacuation approvals or right-of-way obstructions.

3.Curtailment of Power and Grid Backdowns

Curtailment refers to situations where DISCOMs refuse to schedule or offtake power even though it is available for supply. 

While PPAs often guarantee “must-run” status for renewable plants, especially solar and wind, state load dispatch centres (SLDCs) sometimes curtail generation citing “grid security.” 

Developers argue this amounts to a breach of PPA unless backed by valid technical grounds.

4.Change in Law and Policy Transitions

One of the most contentious areas in PPA dispute resolution in India involves the Change in Law clause. Introduction of new taxes (like GST), safeguard duties on solar modules, or changes in transmission regulations can significantly affect project economics.

Developers typically seek pass-through of these costs, while DISCOMs resist on procedural or interpretational grounds, leading to regulatory litigation.

Contractual Preconditions Before Litigation

Before a power purchase agreement dispute in India matures into a regulatory or arbitral proceeding, parties must navigate several contractual preconditions embedded in the PPA itself.

These clauses serve as both a compliance checklist and a procedural gatekeeper.

1.Conditions Precedent (CPs)

Most PPAs stipulate a list of Conditions Precedent (CPs) that the developer must fulfil before the agreement becomes fully operational. These may include:

• Achieving financial closure
  
• Securing land and statutory approvals
  
• Executing grid connectivity and transmission agreements
  

If CPs are not satisfied within the stipulated period, DISCOMs may terminate the PPA or encash the developer’s Performance Bank Guarantee (PBG). However, delays often stem from state authorities’ slow approvals—raising questions of equity and fairness. 

2.Commercial Operation Date (COD)

The Commercial Operation Date marks the official commencement of power supply obligations. 

Disputes arise when DISCOMs allege the project was not “ready for dispatch,” while developers argue that grid non-readiness delayed synchronization. Evidence such as grid inspection reports, testing certificates, and SLDC communication logs play a vital role in proving whether COD was legitimately achieved.

3.Liquidated Damages (LDs) and Performance Bank Guarantees (PBGs)

LDs are pre-agreed penalties for delay or non-performance, while PBGs act as financial security. DISCOMs often encash PBGs citing commissioning delays or breach of PPA. 

Developers typically challenge such encashments as arbitrary or contrary to force majeure provisions. Regulatory bodies like CERC and SERCs have repeatedly held that LDs and PBGs cannot be enforced if delays stemmed from events beyond the developer’s control or if the utility itself contributed to the delay.

4.Notice and Cure Periods

Before initiating a formal claim or termination, PPAs generally require issuance of notice and allow a cure period for rectification. A failure to issue or properly serve notice can invalidate later proceedings.

These preconditions form the procedural foundation of every PPA dispute resolution in India. Observing them meticulously can prevent premature litigation and strengthen the developer’s case before the SERC or APTEL.

Forums & Hierarchy

The appropriate forum is critical in a power purchase agreement dispute in India, as jurisdiction determines both procedural timelines and the nature of available remedies. PPAs often contain arbitration clauses, but statutory disputes under electricity law can sometimes override contractual choices.

1.State Electricity Regulatory Commissions (SERCs)

SERCs are the first point of contact for most PPA disputes, particularly those involving:

• Tariff disagreements
  
• Claims for damages due to curtailment
  
• Enforcement of PPA obligations under the Electricity Act, 2003
  

SERCs have quasi-judicial powers to issue orders binding both generators and DISCOMs. Filing before a SERC is generally mandatory for disputes relating to regulated tariffs or grid operations, unless the PPA explicitly carves out arbitration for such claims.

2.Appellate Tribunal for Electricity (APTEL)

Aggrieved parties can appeal SERC orders to APTEL, which serves as the national-level appellate authority. Key characteristics include:

• National jurisdiction, addressing cross-state disputes
  
• Power to award damages, direct specific performance, or remand cases to SERCs
  
• Precedents set in APTEL PPA cases (e.g., Andhra Pradesh Solar PPA disputes) often guide future litigation
  

APTEL appeals are particularly common when SERC orders are perceived as inconsistent, delayed, or procedurally flawed.

3.Writ Jurisdiction

When parties believe statutory bodies have exceeded powers or violated fundamental rights, writ petitions under Article 226/32 of the Constitution may be filed in High Courts or the Supreme Court. These are exceptional remedies, usually pursued to secure:

• Stay of PPA termination
  
• Interim injunctions preventing encashment of PBGs
  
• Clarification on regulatory interpretation

4.Arbitration Carve-Outs

Some PPAs include arbitration clauses for commercial disputes. However, Indian courts have clarified that statutory obligations under the Electricity Act cannot be completely ousted by arbitration. Typically:

• Purely contractual claims (e.g., late payment penalties, indemnities) can go to arbitration
  
• Regulatory claims, tariff revision, or change-in-law disputes remain under SERC/APTEL jurisdiction
  

Evidence Strategy

In any power purchase agreement dispute in India, the strength of the case often hinges on meticulous evidence collection and presentation. Regulators and tribunals closely examine whether obligations were met, whether delays were excusable, and whether losses claimed are substantiated.

1.Grid Readiness and Evacuation Delays

One of the most frequent points of contention is whether the generator was ready to supply power and whether the DISCOM facilitated evacuation. Evidence includes:

• Grid synchronization certificates from the State Load Dispatch Center (SLDC)
  
• Communication logs for connectivity approvals
  
• Dispatch schedules showing actual versus scheduled generation
  

2.Metering and Energy Accounting Records

Accurate metering is critical to prove both delivery and shortfall of electricity. Documentation that regulators scrutinize includes:

• Meter calibration certificates
  
• Monthly energy accounting reports
  
• SLDC and DISCOM dispatch reconciliations
  

3.Force-Majeure Proof

Force majeure clauses protect generators from liability for events beyond their control. Commonly invoked scenarios are:

• Natural disasters (floods, cyclones)
  
• Grid failures beyond developer control
  
• Regulatory or policy delays
  

4.Documentary Trail of Notices and Communications

Every notice, email, or response related to contractual obligations, cure periods, or dispute escalation is crucial. A well-maintained documentary trail can:

• Prove that statutory and contractual preconditions were followed
  
• Demonstrate proactive mitigation efforts by the developer
  
• Strengthen claims before SERCs or APTEL
  

Conclusion

A power purchase agreement dispute in India is rarely a straightforward contract case—it sits at the intersection of regulatory oversight, commercial obligations, and public policy. Understanding the contractual framework, following procedural prerequisites, choosing the right forum, and building a sound evidentiary record are critical to securing relief.

For both developers and DISCOMs, proactive compliance and timely dispute management are the only sustainable strategies in India’s maturing power market.

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Supreme Court Verdict: Deemed Export Benefits under Foreign Trade Policy not available to Immoveable Assets, in particular, Thermal Power Plants

Supreme Court Upholds PSPCL’s Stand that Deemed Export benefits under the Foreign Trade Policy, 2004-09 and 2009-14 are only available to movable goods, and not to immovable assets such as coal-based thermal power plants and thereby, rejected the claim of Talwandi Sabo Power Limited and Nabha Power Limited contending withdrawal of Deemed Exports Benefits as Change in Law under the Power Purchase Agreement.

The Hon’ble Supreme Court of India, in its judgment dated 19 August 2025 in Nabha Power Limited v. Punjab State Power Corporation Limited & Ors. (Civil Appeal Nos. 8694 & 8739 of 2017), has delivered a landmark ruling upholding the position consistently taken by PSPCL before the State Commission, Appellate Tribunal, and the Apex Court.

PSPCL’s Contentions Before the Courts

Throughout the proceedings, PSPCL consistently advanced the following positions:

1. Inapplicability of Deemed Export Benefits to Thermal Power Plants which do not manufacture goods in India

o PSPCL argued that the Foreign Trade Policy (FTP) 2009-2014 extended deemed export benefits only to movable goods, and not to immovable assets such as coal-based thermal power plants assembled on-site.

o It was submitted that the legislative framework under the FTP and the Central Excise Act clearly distinguished between movable “goods” and immovable infrastructure. A generating station, embedded to the earth, could not be treated as “manufactured goods.”

2. FTP Benefits were Never Available to NPL/TSPL

o PSPCL highlighted that at the time of bid submission and execution of the Power Purchase Agreement (PPA), no deemed export benefits under Para 8.3 of the FTP were available to the project of Nabha Power Limited (NPL) or Talwandi Sabo Power Limited (TSPL).

3. Withdrawal of Benefits Not a “Change in Law”

o PSPCL had submitted that only statutory enactments or duly notified delegated legislation constitute “Change in Law” under Article 13 of the PPA.

o Administrative circulars, public notices, or press releases, lacking statutory force, could not trigger contractual relief. PSPCL stressed that DGFT’s policy notices were administrative/clarificatory in nature and did not qualify as “law.”

Hon’ble Supreme Court’s Findings

The Hon’ble Supreme Court upheld PSPCL’s contentions and the Appellate Tribunal’s Order, holding that:

• Press Releases or Cabinet communications do not constitute “law” under the Power Purchase Agreement (PPA). Only duly notified statutory instruments published in the Official Gazette qualify for consideration as “Change in Law.” The Hon’ble Court has reiterated the stance taken by the 3 Judge Bench in CA 8694 of 2017.
• Deemed export benefits of the Foreign Trade Policy (2009-2014) were never available to coal-based thermal power projects constructed in-situ, as such projects constitute immovable property and not “goods” as envisaged under the FTP.
• Withdrawal of such benefits by DGFT through policy circulars or notices cannot be construed as a “Change in Law” event under Article 13 of the PPA.

This judgment marks a significant affirmation of PSPCL’s consistent stand before the Punjab State Electricity Regulatory Commission (PSERC), the Appellate Tribunal for Electricity (APTEL), and the Hon’ble Supreme Court.

The ruling safeguards the interests of electricity consumers in Punjab by ensuring that the benefits accruing to the Thermal Power plants on account of grant of Mega Power status shall be fully passed on to the consumers of Punjab. This decision is a significant victory for PSPCL and the electricity consumers of Punjab, ensuring that the sanctity of competitive bidding including the Change in law provisions can accrue in favour of the Procurers as well when there is a negative change in law (reduction in cost after bidding) and tariff discipline is preserved.

 

 

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Power Purchase Agreements (PPAs) in India

A Power Purchase Agreement (PPA) is a long-term contract between an energy producer (seller) and an energy consumer (Buyer). PPA’s are a common type of agreement especially in the renewable energy sector. Energy law firms in India extensively deal with such agreements on a regular basis. PPAs enable energy producers to secure a return on their investments made in energy projects thus providing a financial framework to sell the energy produced at a pre-agreed amount. 

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Supreme Court’s Ruling on Change in Law Claims: Haryana Discoms vs GMR Kamalanga Energy Limited

What’s the impact of the Supreme Court ruling in favour of Haryana Discoms over GMR’s Change in Law claims? Unravel the legal complexities of this significant judgment here.

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