IN THE HIGH COURT OF KERALA AT ERNAKULAM PRESENT : THE HONOURABLE MR. JUSTICE THOTTATHIL B.RADHAKRISHNAN TUESDAY, THE 1ST DECEMBER 2009 / 10TH AGRAHAYANA 1931 WP(C).No. 31562 of 2009(M) --------------------------------------- PETITIONER(S): ---------------------- SUDHEESH, AGED 29 YEARS, S/O. SUKUMARAN, VALIYAPARAMBIL VEEDU, ODANNUR, PARLI, PALAKKAD DISTRICT. BY ADV. MR.M.G.KARTHIKEYAN RESPONDENT(S): ------------------------ 1. THE EXCISE COMMISSIONER, COMISSIONERATE OF EXCISE, THIRUVANANTHAPURAM. 2. THE DEPUTY COMMISSIONER OF EXCISE, PALAKKAD. 3. THE CIRCLE INSPECTOR OF EXCISE, ALATHUR, PALAKKAD DISTRICT. 4. THE SUB INSPECTOR OF POLICE, OTTAPPALAM POLICE STATION, PALAKKAD DISTRICT. R1 TO R4 BY GOVERNMENT PLEADER MR.I.V. PRAMOD. THIS WRIT PETITION (CIVIL) HAVING COME UP FOR ADMISSION ON 01/12/2009, THE COURT ON THE SAME DAY DELIVERED THE FOLLOWING: rs. THOTTATHIL B. RADHAKRISHNAN, J ........................................... WP(C).NO.31562 OF 2009 ............................................ DATED THIS THE 1st DAY OF DECEMBER, 2009 JUDGMENT Ext.P4 order of the Commissioner of Excise, suspending the petitioner's license to run toddy shops is under challenge. 2. The Deputy Commissioner of Excise, Palakkad sent letter dated 24.8.2009 to the Commissioner of Excise stating that C.I of Police, Ottapalam and party seized a car transporting 30 litres of spirit and arrested five persons including the petitioner and that police have registered a case alleging offences punishable under Section 55(1) of the Abkari Act. Since the petitioner, the first accused therein, is the licensee of seven toddy shops under Group 1 of Kuzhalmannam Excise Range in Palakkad Division, the Commissioner issued Ext.P2 notice calling upon him to show cause Wpc 31562/2009 2 why the license shall not be cancelled in terms of Rule 5(19) of the Kerala Abkari Shops Disposal Rules, 2002, for short, the `Disposal Rules'. Listed for hearing on 26.9.2009, the matter was adjourned to 20.10.2009. The petitioner then submitted Ext.P3 denying the alleged seizure and other incriminating materials, if at all, against him. He also denied the ownership of the vehicle. On 23.10.2009, the Commissioner issued the impugned order holding that the license and privilege is liable to be suspended on grounds referable to Section 26(bb) of the Abkari Act. It was taken that the definition of `place' in Section 3(21) of the Act takes in a vehicle and hence the petitioner had contravened the provisions of Section 26(bb)of the Abkari Act. 3. Rule 5(19) of Disposal Rules, referred to in Ext.P2 notice, provides for cancellation of license on valid grounds. That rule was Wpc 31562/2009 3 interpreted by this court in Gopidas V. Shibu Mathew(2004(1)KLT 570)holding that valid laws which could form foundation of action under Rule 5(19) have to be understood as those grounds which are authorised by any provisions of the Act or Rules and not de-horse such provisions. It would have obviously been therefore that the Excise Commissioner, while issuing Ext.P4, made specific reference to Section 26(bb) of the Act. That provision enjoins that the Commissioner may cancel or suspend a license or permit granted under the Act, if the holder thereof or his servant, or anyone acting with his express or implied permission, on his behalf sells or stores for sale, liquor in any place other than the licensed premises. 4. This writ petition is filed fundamentally on the ground that Section 26 of the Act has no application on the facts and circumstances of Wpc 31562/2009 4 the case and that the procedure adopted by the Commissioner is unauthorised. It is contended that no charge has been framed by any competent court in terms of Section 211 of Code of Criminal Procedure and therefore the action taken on the assumption that there is a case pending against the petitioner is unfounded. The decision of the Apex Court in Khoday Distilleries Ltd V. State of Karnataka(1995(1) SCC 574)is pressed into service to contend that the petitioner has been visited with hostile discrimination and unequal treatment which should fall on the face of Article 14 of the Constitution. 5. In the counter affidavit filed by the C.I of Excise, it is contended that in terms of Rule 5(3)(i) and 7(33) of the Disposal Rules, the petitioner is liable to be treated as disqualified and hence unqualified to continue to enjoy the license and privilege. Wpc 31562/2009 5 6. Rule 7(33) of the Disposal Rules provides that if after issue of a license to a grantee, it turns out that he had already been convicted prior to the grant of license, which conviction would disqualify him, in terms of Rule 5(3), such disqualification would render him liable for forfeiture of license and for forfeiture of rental. 7. Rule 5(3)(i) provides that no applicant or person is eligible for the privilege, if he is charged with an offence relating to illicit liquor or prosecution proceedings are pending against such applicant or a court of law. In so far as this provision is concerned, this court held in Vijayan V Excise Commissioner(2002(3) KLT 646) that in terms of Section 211 of Code of Criminal Procedure, a person could be treated as charged with an offence only when the court frames charge. On the facts, Vijayan's case lays down that recording of a Wpc 31562/2009 6 First Information Report by a police officer or recording of an occurrence report by an abkari officer does not constitute framing of a charge for the purpose of Rule 5(3)(i). It needs to be noticed that in Vijayan's case, the second limb of Rule 5(3), that is, “ prosecution proceedings are pending” has been left unconsidered. Obviously, that would not have been required in Vijayan's case. This is because, the petitioner, in that case, had approached this court when there was only a First Information Report. 8. Following the registration of a First Information Report, the police officer takes up the procedure of investigation and the investigation concludes by the drawing up of the final report which will move from the investigating agency of the State for the consideration of the Public Prosecutor appearing before the competent criminal court. Wpc 31562/2009 7 The Prosecutor is duty bound in terms of the Code to consider the final report and the materials submitted therewith to conclude for himself whether an offence punishable under any law for the time being in force is made out and with his approval in that regard, he would present it before the criminal court. This is the process by which the State puts its prosecution machinery into action. From the investigation stage, the case thus reaches the stage of commencement of prosecution. The Magistrate before whom the final report is so placed by the Prosecutor, has to apply his mind and conclude on the question of issuance of process. There commences the judicial proceedings. Therefore, the concept of judicial proceedings as understood in Vijayan's case (supra) is necessarily not part of prosecution proceedings. Though Rule 5(3)(i) speaks of prosecution proceedings and pendency of Wpc 31562/2009 8 prosecution proceedings, the commencement of such proceedings is the point of time when the Prosecutor presents the case before the Magistrate for consideration and taking cognizance and issuance of process. In that view of the matter the interpretation of Rule 5 (3)(i), in cases where final report is filed regarding the offences punishable under the Abkari Act are concerned, the matter may require a different look rather than that followed in Vijayan's case. 9. Be that as it may, in the case in hand, the counter affidavit stands with the assertion that the police filed the final report before the Judicial Magistrate of the First Class, Ottapalam on 31.8.2009 and that the case is registered as C.P.92 of 2009 and posted to 24.12.2009 for appearance. The learned counsel for the petitioner states that on enquiry it is noted that the learned Magistrate took Wpc 31562/2009 9 cognizance on 23.10.2009 and had issued process. With this, adverting to the impugned Ext.P4, it needs to be noted that the said order has been issued on 23.10.2009. The police had filed final report before the court on 31.8.2009, that is even before the issuance of show cause notice and the hearing by the Commissioner on 26.9.2009. Yet, the subordinate excise officers did not apprise the Commissioner of the fact that the final report was placed on record before the criminal court. 10. Adverting to the impugned order it could be seen that on the basis of the disputed facts regarding the ownership of the vehicle, the petitioner's allegation that no liquor was available in the vehicle in question etc, the Commissioner had not summoned the files in relation to the case. No reference to files is made in the impugned order. Reference continues to be to the letter of the Deputy Commissioner Wpc 31562/2009 10 which was the basis of the show cause notice. With the aforesaid, the learned counsel for the petitioner is quite right in pointing out that even though a license to vend toddy in terms of the Disposal Rules is only a privilege that the State extends and does not generate any fundamental right, equal application of law and adherence to the Rule of Law in terms of the Disposal Rules and Abkari Act has to be enforced in a salutary manner. It is not a matter for casual enforcement. 11. But it appears that the Commissioner was also not ultimately sure as to what should be the final result of the proceedings before him. I say this because though the power under Section 26 is a power to cancel or to suspend, the Commissioner chose it fit to suspend the license and not to cancel it. The power to cancel and the power to suspend has been considered by this court in Banerji Memorial Wpc 31562/2009 11 Club, Thrissur V. Deputy Commissioner of Excise, Thrissur and others(2009(3)Kerala High Court cases 623). It was noticed therein that the different provisions in Section 26 of Abkari Act may generate different considerations and different conclusions and need not necessarily lead to cancellation of license and in some cases, suspension of license on an immediate order may not be called for at least in cases where the suspension is not the immediate requirement. Reference is made to that judgment only to notice that a violation of Section 26(bb) of abkari Act was among those classified in the judgment as matters where there could be a suspension of license and ultimate cancellation. 12. With the aforesaid view in mind, the Commissioner having only suspended the license, the petitioner has to be heard on the question of cancelling the license, which is the Wpc 31562/2009 12 proposal made in Ext.P2 show cause notice. Such hearing has necessarily to be with the aid of the records including, if needed, from the police files. The linking of the incriminating materials, at least prima facie, to the petitioner would be absolutely essential to form the substance of any statutory exercise depriving the petitioner of the privilege and license granted by the State. 13. For the aforesaid reasons, without interfering with the impugned decision, this writ petition is ordered directing that the petitioner will appear before the Commissioner of Excise either by himself or through proper agent and file any further submissions that he would make. If this is done within a period of one week from the date of receipt of a copy of this judgment, the Commissioner of Excise will summon the necessary materials, consider it and decide the question of revoking the suspension Wpc 31562/2009 13 or continue it; or even to cancel the license. This decision shall be taken within an outer limit of three weeks thereafter. Interim order will stand vacated. THOTTATHIL B RADHAKRISHNAN, JUDGE lgk/8/12