Arbitration: Lack of Section 21 Notice Not Fatal if Claim is Otherwise Valid and Arbitrable – Supreme Court Ruling

 

The Supreme Court of India has delivered a landmark judgment reaffirming the procedural flexibility within arbitration proceedings, particularly concerning the requirement of notice under Section 21 of the Arbitration and Conciliation Act, 1996. In the case of M/s Bhagheeratha Engineering Limited v. State of Kerala[1], a Division Bench comprising Justice J.B. Pardiwala and Justice K.V. Viswanathan set aside the Kerala High Court’s judgment, which had held that an arbitral tribunal cannot decide disputes beyond those specifically referred through a Section 21 notice. The Supreme Court clarified that the non-issuance of such notice does not strip a party of its right to raise claims before an arbitral tribunal if the claim is otherwise valid and the disputes are arbitrable under the arbitration agreement.

Background and Factual Matrix

The appellant, M/s Bhagheeratha Engineering Limited, was awarded four road maintenance contracts under the Kerala State Transport Project, which was funded by the World Bank. These contracts contained a multi-tiered dispute resolution mechanism under the General Conditions of Contract. The mechanism required disputes to first be referred to an Engineer, then to an Adjudicator within fourteen days if the Engineer’s decision was unacceptable, and finally to arbitration if the Adjudicator’s decision was disputed within twenty-eight days of the written decision.

The appellant raised four disputes before the Adjudicator concerning payment issues related to price adjustments for bitumen and petroleum products, escalation during extended periods, and interest on delayed payments. The Adjudicator, by his decision dated August 14, 2004, ruled in favor of the appellant on disputes numbered one and three, while ruling against the appellant on disputes two and four. Despite this decision, the respondent State did not settle the final bills submitted by the appellant.

On October 1, 2004, the respondent State issued a letter to the appellant stating that the Adjudicator’s award on Dispute No. 1 was unacceptable and expressed its intention to refer the matter to arbitration, appointing its arbitrator. The State’s letter specifically mentioned only Dispute No. 1. The appellant responded by pointing out that the twenty-eight-day period for referring disputes to arbitration had expired, making the Adjudicator’s decision final and binding. However, after subsequent correspondence, both parties agreed to constitute an arbitral tribunal.

The arbitral tribunal, after addressing jurisdictional objections under Section 16 of the Act, proceeded to adjudicate all four disputes and passed an award in favor of the appellant on June 29, 2006, awarding a total sum of Rs. 1,99,90,777 along with post-award interest. The respondent challenged this award under Section 34 before the District Judge, who set aside the award and restored the Adjudicator’s decision. On appeal under Section 37, the Kerala High Court upheld this decision on the ground that the tribunal was appointed only to adjudicate Dispute No. 1, as the appellant had never issued a separate Section 21 notice for disputes two through four.

Legal Framework Governing Arbitration Proceedings

The Arbitration and Conciliation Act, 1996

The Arbitration and Conciliation Act, 1996 was enacted to consolidate and amend the law relating to domestic arbitration, international commercial arbitration, and enforcement of foreign arbitral awards. The Act draws heavily from the UNCITRAL Model Law on International Commercial Arbitration and aims to minimize judicial intervention while maximizing party autonomy in dispute resolution[2].

Section 21: Commencement of Arbitral Proceedings

Section 21 of the Act provides: “Unless otherwise agreed by the parties, the arbitral proceedings in respect of a particular dispute commence on the date on which a request for that dispute to be referred to arbitration is received by the respondent.” This provision establishes the temporal milestone for the commencement of arbitral proceedings and operates on the principle of party autonomy, as indicated by the opening phrase “unless otherwise agreed by the parties.”

The primary purpose of Section 21 is to determine the commencement date of arbitration proceedings for calculating the limitation period. The provision ensures that both parties are informed about the initiation of arbitration proceedings, thereby upholding principles of natural justice. While courts have consistently held that issuance of a Section 21 notice is mandatory for determining limitation[3], the Supreme Court has now clarified that failure to issue such notice does not necessarily invalidate the arbitration proceedings if the claim is otherwise valid and arbitrable.

Section 23: Statement of Claim and Defence

Section 23 of the Act mandates that within the period agreed upon by the parties or determined by the tribunal, the claimant shall state the facts supporting the claim, the points at issue, and the relief sought. The respondent must state his defence in respect of these particulars. Sub-section (2A) specifically provides that “the respondent, in support of his case, may also submit a counter-claim or plead a set-off, which shall be adjudicated upon by the arbitral tribunal, if such counter-claim or set-off falls within the scope of the arbitration agreement.”

Sub-section (3) further provides that “unless otherwise agreed by the parties, either party may amend or supplement his claim or defence during the course of the arbitral proceedings, unless the arbitral tribunal considers it inappropriate to allow the amendment or supplement having regard to the delay in making it.” This provision demonstrates the flexibility built into the arbitral process, allowing parties to modify their claims during the proceedings.

Section 16: Jurisdiction of Arbitral Tribunal

Section 16 empowers the arbitral tribunal to rule on its own jurisdiction, including ruling on any objections with respect to the existence or validity of the arbitration agreement. This principle, known as “kompetenz-kompetenz,” allows the tribunal to determine whether it has the authority to adjudicate disputes brought before it. The tribunal’s jurisdiction is derived from the arbitration agreement itself, not from the initial notice of invocation.

The Supreme Court’s Analysis and Reasoning

Conduct of the Respondent as a Waiver

The Supreme Court emphasized that the sequence of events demonstrated a clear waiver by the respondent of procedural requirements. The Court noted several critical factors: the appellant had referred all four disputes to the Adjudicator, and while the respondent questioned the timeliness of this reference before the arbitral tribunal, no such objection was raised before the Adjudicator himself. The Adjudicator proceeded to decide all four disputes on merits.

Moreover, when the respondent sought to refer Dispute No. 1 to arbitration on October 1, 2004, this was done fifty-six days after the Adjudicator’s decision, well beyond the twenty-eight-day period stipulated in the contract. The High Court itself had found that this twenty-eight-day time limit offended Section 28(b) of the Indian Contract Act. When the appellant objected to this delay, the respondent wrote back stating that the issue of delay could itself be referred to the arbitrator and that they disagreed with the Adjudicator’s recommendations. This indicated that the respondent never treated the Adjudicator’s decision as final and binding.

Most significantly, before the arbitral tribunal, the respondent filed an application seeking to declare the entire decision of the Adjudicator as null and void on the ground that the reference to the Adjudicator had violated the contract’s time limits. The arbitral tribunal, while addressing the Section 16 objection, held that the appellant’s claims remained unsettled and that the arbitration clause was comprehensive enough to include any matter arising out of or connected with the agreement.

The Supreme Court relied on its earlier decision in M.K. Shah Engineers & Contractors v. State of M.P.[4], which established that a party cannot take advantage of its own wrong. Where one party has by its own conduct disabled the performance of procedural prerequisites, it will be deemed that such requirements were waived. The Court observed that procedural steps preceding the operation of an arbitration clause, though essential, are capable of being waived, and if one party has frustrated such steps through its own conduct, it cannot subsequently rely on non-compliance to exclude the applicability of the arbitration clause.

Limited Purpose of Section 21

The Supreme Court clarified that Section 21 serves a limited procedural purpose. The provision is concerned only with determining when arbitration proceedings commence for the purpose of reckoning limitation. There is no mandatory prerequisite for issuance of a Section 21 notice prior to commencing arbitration. The failure to issue such notice may affect the computation of limitation for specific claims but does not render the arbitration proceedings invalid if the claim is otherwise valid and the disputes fall within the scope of the arbitration agreement.

In ASF Buildtech Private Limited v. Shapoorji Pallonji & Company Private Limited[5], Justice Pardiwala (one of the judges in the present case) had observed that Section 21 is procedural rather than jurisdictional. It does not serve to create or validate the arbitration agreement itself, nor is it a precondition for the existence of the tribunal’s jurisdiction. Rather, it merely operates as a statutory mechanism to ascertain the date of initiation for reckoning limitation.

The Court noted that the language of Section 21 refers to “particular dispute,” which indicates that the provision is concerned only with determining when arbitration is deemed to have commenced for the specific dispute mentioned in the notice. This does not mean that the tribunal’s jurisdiction is confined to only those disputes mentioned in the notice of invocation. The term “particular dispute” does not mean all disputes, nor does it restrict the tribunal’s jurisdiction, which emanates from the arbitration agreement itself.

Scope of Arbitration Agreement Controls Jurisdiction

The Supreme Court emphasized that once an arbitral tribunal is constituted, the scope of reference is determined by the arbitration agreement and Section 23 of the Act, not solely by the initial notice of invocation. In the present case, the arbitration clause was widely worded, providing that any dispute or difference arising between the parties relating to any matter arising out of or connected with the agreement shall be settled in accordance with the Act.

The Court reiterated the principles laid down in State of Goa v. Praveen Enterprises[6], which held that where an arbitration agreement provides that all disputes between the parties relating to the contract shall be referred to arbitration, the claimant is not bound to restrict his statement of claim to the claims already raised by notice. Unless the arbitration agreement requires the arbitrator to decide only specifically referred disputes, the claimant can amend or add to the claims already made while filing the statement of claim or thereafter.

Similarly, a respondent is entitled to raise a counterclaim and amend or add to it, unless the parties have otherwise agreed. The Court noted that where the arbitration clause is of wide amplitude covering any dispute arising out of or connected with the contract, both the claimant and respondent are entitled to make any claims or counterclaims and further entitled to add to or amend such claims, provided they are arbitrable and within limitation.

Terminology: Claimant and Respondent

The Supreme Court addressed the respondent’s argument that the appellant could not be referred to as a “claimant” because it had not issued a Section 21 notice. The Court held this contention to be completely untenable. Once an arbitral tribunal is constituted, claims, defence, and counterclaims are filed. The party which normally files the claim first is, for convenience, referred to as the “claimant,” and the party which responds is called the “respondent.” The respondent is entitled to file a counterclaim along with the defence statement. Therefore, the nomenclature of parties as claimant or respondent is not dependent on who issued the Section 21 notice but on who files the claim statement first before the tribunal.

Judicial Precedents Supporting the Decision

Indian Oil Corporation Ltd. v. Amritsar Gas Service

The Supreme Court referred to Indian Oil Corporation Ltd. v. Amritsar Gas Service[7], where it was held that when a reference to arbitration is made by the court covering all disputes between the parties, the occasion to make a counterclaim could arise only after the order of reference. Refusing to consider the counterclaim merely because it was not raised at an earlier stage would disclose an error of law. This case established that counterclaims need not be preceded by a separate notice and can be raised during the arbitral proceedings.

Adavya Projects Private Limited v. Vishal Structurals Private Limited

In a recent decision, Adavya Projects Private Limited v. Vishal Structurals Private Limited[8], the Supreme Court reiterated that claims and disputes raised in the Section 21 notice do not restrict and limit the claims that can be raised before the arbitral tribunal. The consequence of not raising a claim in the notice is only that the limitation period for such claim will be calculated differently. However, non-inclusion of certain disputes in the Section 21 notice does not preclude a claimant from raising them during arbitration, as long as they are covered under the arbitration agreement. The Court specifically held that merely because a respondent did not issue a notice raising counterclaims, he is not precluded from raising the same before the tribunal, as long as such counterclaims fall within the scope of the arbitration agreement.

Implications for Arbitration Practice

Flexibility in Arbitral Proceedings

This judgment reinforces the principle that arbitration is a flexible and party-centric dispute resolution mechanism. The technical requirement of a Section 21 notice should not be used as a tool to defeat substantive justice. Where parties have agreed to a broadly worded arbitration clause covering all disputes arising out of or connected with the contract, the scope of the arbitral tribunal’s jurisdiction is determined by that agreement, not by the initial invocation notice.

Party Conduct and Waiver

The decision underscores the importance of party conduct in arbitration proceedings. Where a party’s own actions demonstrate an intention to have all disputes resolved through arbitration, that party cannot subsequently rely on technical procedural defects to limit the tribunal’s jurisdiction. This prevents parties from taking inconsistent positions and ensures that disputes are resolved on their merits rather than on procedural technicalities.

Limitation Considerations

While the judgment clarifies that lack of a Section 21 notice is not fatal to a claim, practitioners must remain mindful that such notice serves an important purpose in determining the limitation period for claims. Claims that are not mentioned in the initial Section 21 notice may face different limitation calculations. The date on which such claims are first raised before the tribunal becomes relevant for determining whether they are within the limitation period.

Drafting Arbitration Clauses

The judgment has implications for drafting arbitration clauses. Parties who wish to limit the tribunal’s jurisdiction to only specifically referred disputes must expressly provide for such limitation in the arbitration agreement. In the absence of such express limitation, a broadly worded arbitration clause will be interpreted to cover all disputes arising out of or connected with the contract, regardless of whether they were mentioned in the initial notice invoking arbitration.

Conclusion

The Supreme Court’s decision in M/s Bhagheeratha Engineering Limited v. State of Kerala represents a pragmatic approach to arbitration law that prioritizes substance over form. The judgment clarifies that Section 21 of the Arbitration and Conciliation Act, 1996 serves primarily to determine the commencement date of arbitral proceedings for limitation purposes. The non-issuance of a Section 21 notice for specific disputes does not necessarily deprive a party of the right to raise claims before an arbitral tribunal, provided those claims fall within the scope of the arbitration agreement and are otherwise valid and arbitrable.

The Court’s emphasis on party conduct and the principle that no one should be allowed to take advantage of their own wrong ensures that arbitration proceedings remain focused on resolving disputes on their merits. By holding that the scope of the arbitral tribunal’s jurisdiction is determined by the arbitration agreement and not merely by the initial notice of invocation, the Supreme Court has reinforced the flexibility and efficiency that are hallmarks of arbitration as an alternative dispute resolution mechanism.

This judgment serves as an important reminder that while procedural requirements have their place in ensuring fairness and orderliness in arbitral proceedings, they should not be used as tools to defeat substantive justice. The decision strikes a balance between respecting procedural requirements and ensuring that parties who have agreed to resolve their disputes through arbitration are able to do so effectively and comprehensively. Legal practitioners and arbitrators must take note of these principles when advising clients on arbitration strategy and when conducting arbitral proceedings.

References

[1] M/s Bhagheeratha Engineering Limited v. State of Kerala, Civil Appeal No. 39 of 2026, decided on January 7, 2026. Available at: https://www.livelaw.in/top-stories/arbitration-lack-of-s-21-notice-not-fatal-if-claim-is-otherwise-valid-arbitrable-supreme-court-518448

[2] The Arbitration and Conciliation Act, 1996. Available at: https://www.indiacode.nic.in/bitstream/123456789/1978/3/a1996-26.pdf

[3] Alupro Building Systems Pvt. Ltd. v. Ozone Overseas Pvt. Ltd., (2017) Delhi High Court. Discussed in: https://elplaw.in/leadership/elp-arbitration-update-essential-ingredients-of-the-notice-invoking-arbitration-under-section-21-of-the-arbitration-conciliation-act-1996/

[4] M.K. Shah Engineers & Contractors v. State of M.P., (1999) 2 SCC 594. Available at: https://indiankanoon.org/doc/138599/

[5] ASF Buildtech Private Limited v. Shapoorji Pallonji & Company Private Limited, (2025) 9 SCC 76. Cited in the judgment.

[6] State of Goa v. Praveen Enterprises, (2012) 12 SCC 581. Cited in the Supreme Court judgment.

[7] Indian Oil Corporation Ltd. v. Amritsar Gas Service and Others, (1991) 1 SCC 533. Cited in the Supreme Court judgment.

[8] Adavya Projects Private Limited v. Vishal Structurals Private Limited, (2025) 9 SCC 686. Available at: https://lawtrend.in/section-21-notice-not-mandatory-for-every-claim-respondents-conduct-can-expand-scope-of-arbitration-reference-supreme-court/

[9] Section 21, Arbitration and Conciliation Act, 1996. Full text available at: https://ibclaw.in/section-21-commencement-of-arbitral-proceedings/