These appeals concern the determination of Cross-Subsidy Surcharges (CSS) by the Rajasthan Electricity Regulatory Commission (State Commission) under Section 42(2) of the Electricity Act, 2003. The industrial units (respondents) in various parts of Rajasthan were operating through “open access” by drawing electricity from the State grid. A significant amount of cross-subsidisation occurs, where categories like industrial and commercial consumers subsidise others like agricultural and domestic consumers. CSS is a statutory charge paid by open access consumers to compensate distribution licensees for the subsidy they are deprived of when consumers source electricity elsewhere3. The State Commission determined the CSS for the Financial Year (FY) 2015-2016 by a tariff order dated 22nd September 2016. Subsequently, on 1st December 2016, the distribution licensees approached the State Commission to determine the CSS under Sections 39 and 40 of the 2003 Act. The State Commission then determined the CSS payable based on the tariff order dated 22nd September 2016, which was in force till the next tariff order on 2nd November 2017. The Appellate Tribunal for Electricity (APTEL) set aside this order of the State Commission, directing it to revisit the subject of CSS in accordance with law, finding that the absence of a tariff petition for F.Y. 2016-2017 meant the State Commission had wrongly determined the CSS. Jaipur Vidyut Vitran Nigam Limited (appellant) challenged the APTEL’s judgment.
Law Involved: The case involved statutory appeals under Section 125 of the Electricity Act, 2003. Key provisions and regulations considered included:
Section 42(2) of the Electricity Act, 2003: Mandates the State Commission to specify cross-subsidies and the extent of open access surcharges.
Section 61 of the Electricity Act, 2003: Empowers the Regulatory Commission to determine tariffs.
Rajasthan Electricity Regulatory Commission (Terms and Conditions for Determination of Tariff) Regulations, 2014: Particularly Regulation 89 (Cross subsidy) and Regulation 90 (Cross-subsidy Surcharge formula), which outline the calculation of CSS.
Relevant legal precedents such as Sesa Sterlite Ltd. v. Orissa Electricity Regulatory Commission & Ors. and Tata Power Company Limited cases were also cited7….
Reasoning: The Supreme Court considered the arguments regarding the determination of CSS. The appellants argued that the CSS determined by the State Commission’s 1st December 2016 order, based on the tariff fixed on 22nd September 2016, should continue during the relevant period. The APTEL had held that the determination of CSS by the State Commission was “hyper-technical and erroneous,” partly because a tariff petition for F.Y. 2016-2017 was not filed.
The Supreme Court found APTEL’s view to be erroneous. It clarified that Section 42 of the 2003 Act imposes a statutory duty on distribution licensees to develop and maintain an efficient system for electricity supply and that the State Commission must specify cross-subsidies and open access charges. The CSS is a compensation for the distribution licensee for being deprived of the cross-subsidisation prevalent in the retail supply tariff. The Court noted that the State Commission, when determining the tariff, had already identified the issue of CSS and applied the formula provided in Regulation . The State Commission observed that the mere absence of a tariff petition for F.Y. 2016-2017 would not prevent or restrict it from determining the CSS.
The Supreme Court emphasised that the CSS determination is an integral part of the tariff determination process, and the rates of CSS were part of the tariff regime put in place by the 22nd September 2016 order. This order remained in force until the 2nd November 2017 order. Therefore, the determination of CSS by the State Commission on 1st December 2016 was appropriate and based on the prevailing tariff rates.
Holding: The Supreme Court allowed the appeals. It found that the view taken by the APTEL was erroneous and could not be sustained. Accordingly, the Supreme Court restored the order dated 1st December 2016 passed by the State Commission. The Court clarified that the State Commission’s order of 1st December 2016 would remain in force until 2nd November 2017.
Jaipur Vidyut Vitaran Nigam Limited And Others V. Rajasthan Textile Mills Association And Another Etc.
Supreme Court: 2025 INSC 592: (DoJ 29-04-2025)




