The “Forum Conundrum” in the Insolvency and Bankruptcy Code, 2016
[By Soumyodeep Halder] The author is a student at Government Law College, Mumbai. The Insolvency and Bankruptcy Code, 2016 (“IBC” or “Code”) was envisioned as a means to rescue businesses from financial distress. The Code sought to consolidate the extant legal framework into a single piece of legislation. As a result, the IBC repealed two Victorian legislation – i.e. the Presidency Towns Insolvency Act, 1909 and Provincial Insolvency Act, 1920 (“Extant Laws”). The Central Government also amended 11 other ancillary legislation to streamline the insolvency and liquidation procedure stipulated under the Code. Ever since the Code was notified, it has undergone periodic amendments to be in sync with the changing business requirements. However, few of these amendments and modifications have been done with myopic vision resulting in excruciating delay and uncertainty. Over the course of this paper, the author shall elucidate (i) the historic development of jurisprudence with respect to proceedings against personal guarantors under this Code, (ii) the legislature’s ineptitude in crystallizing the legal framework for proceeding against personal guarantors and (iii) the incidental apathy with respect to the appropriate forum. The IBC became effective from December 2016 with certain provisions of it being notified from August 2016. Thereafter, the government established various benches of the National Company Law Tribunal (“NCLT”) across the country. The Code is structured in 5 parts. Part I and II inter alia deal with an introduction, corporate insolvency resolution process[i] (“CIRP”) and liquidation of corporate debtors[ii]. These parts were made operative at the outset. Over the course of the years, the parties involved realized that there were teething issues that were creating bottlenecks in a smooth resolution process. The predominant issue here was the inability of financial creditors to pursue effective action against the promoters of the corporate debtors. Section 60 of the Code states that the NCLT shall be the adjudicating authority for CIRP. There were instances when financial creditors attempted to bring in promoter assets into the asset pool for the purpose of enforcing promoter guarantees. An argument was put forth that the NCLT, under section 60 of IBC could only adjudicate matters related to the corporate debtors and not individuals. Therefore, they did not have the requisite jurisdiction to hear cases against promoters (individuals). Numerous cases of promoters ring-fencing their assets and being unaffected by the CIRP came to light[iii]. Financial creditors had to mount multiple litigations in various courts of law in order to enforce promoter guarantees[iv]. This resulted in higher costs, prolonged and multiplicity of proceedings and erosion of asset value. The genesis of this issue could be traced to the fact that Part III of the Code which dealt with “Insolvency and Bankruptcy for Individuals and Partnership Firms” was not notified. Therefore, to combat this issue, the Central Government amended (“2018 Amendment”) section 60 of the Code to introduce adjudication of personal guarantors before the NCLT[v]. Pursuant to the 2018 Amendment, section 60 (2) now reads, “Without prejudice to sub-section (1) …….. an application relating to the insolvency resolution or 1[liquidation or bankruptcy of a corporate guarantor or personal guarantor, as the case may be, of such corporate debtor] shall be filed before such National Company Law Tribunal.” Therefore, proceedings against personal guarantors which were originally governed under Part III of the Code and adjudicated by the Debt Recovery Tribunal (“DRT”) pursuant to section 179 of the Code, were now before the NCLT. The 2018 Amendment may have given the impression of solving a simple forum issue but in reality, it further muddled the existing provisions of the Code. Post the amendment, financial creditors began making promoters (who had provided personal guarantees) party to the insolvency proceedings to optimize their recoveries. However, unlike the procedure established for insolvency of corporate debtors, no procedure was established for the insolvency of those promoters who were parties to these proceedings before the NCLT. Detailed procedure for insolvency of individuals stipulated from section 78 to 187 was provided for in Part III of the Code. However, Part III was not notified. Therefore, NCLTs across the country struggled to deal with adjudication of personal guarantors due to the inadequacy of the legal framework. To ease the burden on the NCLT and clarify the procedure of adjudication of personal guarantors, the Central Government notified Part III of the Code[vi] (“Impugned Notification”) in so far as it dealt with personal guarantors to corporate debtors. The Impugned Notification which may have been legislated with the best of intentions, stirred the hornet’s nest. It resulted in a plethora of legal questions. The most pertinent of them are: Previously, insolvency against personal guarantors would be initiated under the Extant Laws. By notifying section 243 of the Code (which would repeal the Extant Laws), the Central Government has created two self-contradictory legal regimes. A guarantor whose liability under section 128 of the Indian Contracts Act, 1872 is co-extensive with the principal debtor. Hence, under CIRP, when the resolution plan is accepted, the corporate debtor is discharged of its liability and by extension, the surety (i.e. the guarantor) too is discharged[vii]. However, by the effect of this Impugned Notification, the financial creditors can now continue to proceed against the guarantors after the corporate debtor is discharged of its liability pursuant to the resolution plan. Before Part III of the Code was notified, cases against personal guarantors were adjudicated before the NCLT under section 60 (2) of the Code pursuant to the 2018 Amendment. The Impugned Notification was brought in to aid NCLT with the procedure of adjudication of personal guarantors as provided in Part III. However, under section 179 of Part III of the Code, adjudicating authority against individuals rests with the DRT. Therefore, parties in an insolvency proceeding did not know which forum to approach for proceedings against personal guarantors. Due to such inconsistent law making by the Executive, matters had to be finally decided by the Supreme Court (“Court”) in the Lalit Kumar Jain vs. Union of India & Ors[viii]. This judgement was one of the landmark insolvency cases since
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