# THAKUR PRASAD SAO ETC v. THE MEMBER. BOARD OF REVENUE & ORS

- **Citation:** [1976] 3 S.C.R. 34
- **Court:** Supreme Court of India
- **Decided:** 1975-03-15
- **Bench:** A. N. Ray, M. H. Beg, R. S. Sarkaria, P. N. SlllNGHAL
- **Source:** https://unisonlegal.in/judgment/supreme-court-of-india/thakur-prasad-sao-etc-v-the-member-board-of-revenue-ors-6806
- **Pages:** 10

## Headnote

Biliur & ()ris!:irl FKcisl' Act 1915-Ss. 22 and 30-Liceuce pn111ted 111;dcr s. 22
an exclusive pril'ihge-lnahility to open liquor shop-If l·ntitled to refund of
fees-Incurring loss-If a gro1111d for reduction of fees-if refund .1fiould be
granted if quid pro quo is absent.
Under the Bihar & Orissa Excise Act the holder of an outstill licence for
country liquor pays a certain sum per mensem for manufacturing country spirit
in his outstill nnd selling it by retail in his premises.
No definite are:i. is fixed
within which each outstill has the n1onopoly to supply country spirit but thci1
number is regulated according to rules and five miles is taken a~ the minimun1
distance betV1'een one outstill and another.
·
The appellants in all the appeals were the holders of licences for the manu~
facturing and sale of country liquor. In the first batch of cases the appellant
could not open the outsill even after more than si_X months of its gr~int despite
his best efforts.
The approval for op::ning the outstill \vas withdra\Vn and
ht~
\Vas asked to pay the monthly licence fee according to the terms of licence. The
appellant's clairn for refund of the money deposited by him. together with compensation for loss of anticipated profits and da1nages, \vas rejected.
l)cspite this,
the appellant continued to bid for licences during the subsequent three
year"
nnd claimed refund and damages, which claim was rejected by the wuthoritics.
In the second batch of appeals the appellants claimed reduction of the licence
fee for outstill liquor shops on the ground that they incurred losses because of
the speculative bids at the auction should have been prevented by the 2uthorities.
Jn the third batch of cases th_e appellants claim·td refund of <;urns realised from
them on the ground that there was no quid pro quo for the fees.
Jn all the.
cases the High Court dismissed their wTit petitions.
On appeal it \Vas contended that the High Court \Vas wrong in holding that
exclusive privilege had been granted under s. 22 of the Bihar & Orissa Excise
Act, 1915 but that the licences fell within the purvie\V of s. 30 of the Act.
Dismissing the appeals,
HELD : ( 1) It is futile to contend that the licences were n1ercly licences for
the retail sale of spirit for consumption on the vendor's premises \Yithin the
meaning of s. 30 of the Act.
The essential feature of the outstill system is that
the holder of a licence acquires the right to manufacture country spirit in his
outstill and sell it by retail "in his premises" \Vithout any restriction on the
strength or prices at which the spirit is manufa:etured or sold.
He has a mono~
poly of manufacturing and supplying country liquor within his area.
The right
is, therefore, an cxclnsive privilege within the meaning of s. 22( 1) ( d _) of the
Act. [38A-C]
(2) The licences of the appellants remained in force for the purposes fo:·
I
•
Vv'hich they were granted and by virtue of the express provisions of s. 45 they
}·,
could have no claim to compensation. [38 G]
(3) Even though the I-Jigh Court has held that \Vhat \Vas ~ranted was an
cxclusivci privilege under s. 22, it did not notice s. 44(2) \vhile taki11g the vie'v
that the petitioner was at liberty to surrender the licence.
Section 44(2) clearly
provides that sub·s. ( 1) of that section shall not apply in the case of a licence
for the sale of any country liquor in exercise of an exclusive privilege granted
under s. 22(c). [38 F-G]
(4) There is no!hing wrong in the vie\V taken by the High Court that the
responsibility for finding a suitable site was that of the appellant.
There is no
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T. P. SAO I'. BOARD OF REVENUE (Shinghal, !. )
35
justification for the argument that nothing was payable by the appellant because
A
he could not Jocate the shop in spite of his best efforts.
The appellants retained
the licence all through and continued to make higher bids at the subsequent
public auctions thereby preventing others from undertaking the responsibility' of
establishing tbe outstil

## Text

II
E
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G
THAKUR PRASAD SAO ETC.
v.
THE MEMBER. BOARD OF REVENUE & ORS.
December 18. 1975
[A. N. RAY, C.J., M. H. BEG, R. S. SARKARIA AND P. N. SlllNGHAL, JJ.]
Biliur & ()ris!:irl FKcisl' Act 1915-Ss. 22 and 30-Liceuce pn111ted 111;dcr s. 22
an exclusive pril'ihge-lnahility to open liquor shop-If l·ntitled to refund of
fees-Incurring loss-If a gro1111d for reduction of fees-if refund .1fiould be
granted if quid pro quo is absent.
Under the Bihar & Orissa Excise Act the holder of an outstill licence for
country liquor pays a certain sum per mensem for manufacturing country spirit
in his outstill nnd selling it by retail in his premises.
No definite are:i. is fixed
within which each outstill has the n1onopoly to supply country spirit but thci1
number is regulated according to rules and five miles is taken a~ the minimun1
distance betV1'een one outstill and another.
·
The appellants in all the appeals were the holders of licences for the manu~
facturing and sale of country liquor. In the first batch of cases the appellant
could not open the outsill even after more than si_X months of its gr~int despite
his best efforts.
The approval for op::ning the outstill \vas withdra\Vn and
ht~
\Vas asked to pay the monthly licence fee according to the terms of licence. The
appellant's clairn for refund of the money deposited by him. together with compensation for loss of anticipated profits and da1nages, \vas rejected.
l)cspite this,
the appellant continued to bid for licences during the subsequent three
year"
nnd claimed refund and damages, which claim was rejected by the wuthoritics.
In the second batch of appeals the appellants claimed reduction of the licence
fee for outstill liquor shops on the ground that they incurred losses because of
the speculative bids at the auction should have been prevented by the 2uthorities.
Jn the third batch of cases th_e appellants claim·td refund of <;urns realised from
them on the ground that there was no quid pro quo for the fees.
Jn all the.
cases the High Court dismissed their wTit petitions.
On appeal it \Vas contended that the High Court \Vas wrong in holding that
exclusive privilege had been granted under s. 22 of the Bihar & Orissa Excise
Act, 1915 but that the licences fell within the purvie\V of s. 30 of the Act.
Dismissing the appeals,
HELD : ( 1) It is futile to contend that the licences were n1ercly licences for
the retail sale of spirit for consumption on the vendor's premises \Yithin the
meaning of s. 30 of the Act.
The essential feature of the outstill system is that
the holder of a licence acquires the right to manufacture country spirit in his
outstill and sell it by retail "in his premises" \Vithout any restriction on the
strength or prices at which the spirit is manufa:etured or sold.
He has a mono~
poly of manufacturing and supplying country liquor within his area.
The right
is, therefore, an cxclnsive privilege within the meaning of s. 22( 1) ( d _) of the
Act. [38A-C]
(2) The licences of the appellants remained in force for the purposes fo:·
I
•
Vv'hich they were granted and by virtue of the express provisions of s. 45 they
}·,
could have no claim to compensation. [38 G]
(3) Even though the I-Jigh Court has held that \Vhat \Vas ~ranted was an
cxclusivci privilege under s. 22, it did not notice s. 44(2) \vhile taki11g the vie'v
that the petitioner was at liberty to surrender the licence.
Section 44(2) clearly
provides that sub·s. ( 1) of that section shall not apply in the case of a licence
for the sale of any country liquor in exercise of an exclusive privilege granted
under s. 22(c). [38 F-G]
(4) There is no!hing wrong in the vie\V taken by the High Court that the
responsibility for finding a suitable site was that of the appellant.
There is no
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T. P. SAO I'. BOARD OF REVENUE (Shinghal, !. )
35
justification for the argument that nothing was payable by the appellant because
A
he could not Jocate the shop in spite of his best efforts.
The appellants retained
the licence all through and continued to make higher bids at the subsequent
public auctions thereby preventing others from undertaking the responsibility' of
establishing tbe outstills. [40 B-D]
(5} It \vas permissible for the State to frame rules for the grant of licences
on payment of fees fixed by auction, for that was only a mode or medium for
ascertaining the best price for the grant of exclusive privilege of n1anufacturing
&
and selling liquor. [41 A-B]
Nashirwar etc. v. State of Madhya Pradesh & Ors. [19751 2 SCR 861 and
Har Shankar & Ors. etc. v. The Deputy Excise & Taxation Conunissioner & Ors.
etc., [1975] 3 SCR 254 explained.
(6) In the second group of appeals, there is nothing in the rules which
could be said to give rise to a right in favour of the appellants for reduction
of the amount.;; demanded from them. {43 A-Bl
c·
(7) In/ the third group of appeals the High Court was right in holding that
the amounts in question were payable for the licence which had baen granted
for the exclusive privilege.
The argument that there should be refund of fees
because there \Vas no quid pro quo is no longer available to the appellants in
vie\y of this C0urt's decision in J\.1ashirwar's case and Har Shankar's case.
[43 C-D]
Ov1L APPELLATE JURISDICTION:
Civil Appeals Nos. 819-823
D•
of 1975.
From the Judgment and order dated 15-3-1975 of the Patna High
Court in Civil Writ Nos. 1184 of 1974.
AND
(JVIL APPEALS Nos. 824-827 and 1105 of 1975.
Frnm the Judgment and order dated 2-1-1973 of the Patna High
Court in Civil Writ P.C. Nos. 1239 to 1242 of 1971 and 1532/73
respectively.
Basudec Prasad (fn CAs. 819-827 /75) for the Appellants (in all
the appeals).
Batbhadra Prasad, A.G. Bihar (In Cas. 819--823), U. P. Singh
for Respondents (In all the appeals).
The Judgment of the Court was delivered bySHINGH,\L, J.,-These ten appeals against two judgments of the
High Court of Judicature at Patna raise some common questions of law.
F
They have been argued together, and we shall examine them in this
G
common judgment.
Civil Appeals Nos. 824--827 of 1975 arise out
of a common judgment dated January 2, 197 5 in a bunch of civil writ
petitions; Civil Appeals Nos. 819-823 of 1975 arise out of a common
judgment dated March 15. 1975 in another bunch of civil writ petitions; while Civil Appeal No. JJ 05 of 1975 is directed against the
aforesaid judgment dated January 2, 1975 by which the civil writ petition giving rise to it was also disposed of by the High Court along with
ff
the other petitions.
Certificates of fitness have been granted for all
the appeals. There is no controversy in regard to some of the basic
facts and they arc quite sufficient for the disposal of the appeals.
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SUPREME COURT REPORTS
[1976] 3 S.C.R.
A sale notice was published by the authorities concerned 1 or the
auction of licences to open country liquor shops in Singhbhum district
with effect from April 1, 1966, including an outstill shop at Bhirbh"·-
nia.
Appellant Ayodhya Prasad gave the highest hid which was knocked down in his favour, and he deposited two months' licence fee in
advance at the rate of Rs. 3,650/- per month.
He applied on March
22, 1966 to the Kolhan Superintendent of Singhbhum to settle a piece
of land for establishing an outstill shop at Bharbharia, but the application was rejected on September 27, 1966 because of the objection
raised by some members of the District Consultative Committee.
The
villagers of Bharbharia also opposed the opening of the outstill shop.
The shop could not therefore be established there.
The appellant however obtained a piece of land in village Chittimitti and applied on July
30, 1966 for permission to open the outstill shop there. This was allowed and the appellant claimed that he began to collect the necessary
material but a mob forcibly removed the building and the distillation
material.
He filed a report with the Police about the incident The
approval for opening the outstill shop at Chittimitti was however withdrawn on October 6, 1966 and the appellant was asked to pay the
monthly licence fee for the period April 1, 1966 to January, 1967.
He denied his liability to pay the fee and claimed a refund of the
money which had been deposited by him.
His case was recommended
by the Collector for remittance of the licence fee amounting to Rs.
43,800/- for the entire year 1966-67. He also made an application to the
Commissioner of Excise for refund of the deposit of Rs. 7,300/- and
for payment of compensation for loss of anticipated profits and damages, but the application was rejected. It appears that the appellant
went on bidding at the bids for the subsequent three years, and laid
similar claims for refund and damages, but to no avail.
He then filed
the bunch of writ petitions referred to above for quashin~ the demand
notices, but they have been dismissed as aforesaid by the High Court's
judgment dated January 2, 1975. Civil Appeal No. 825 relates to the
bid for 1.966-67, Civil Appeal No. 824 relates to the bid for 1967-68.
while Civil Appeals Nos. 826 and 827 relate to the bids for 1968-69
aI1d 1969-70.
These !llay be said to be group 'A' appeals.
Civil Appeals Nos. 819-823 of 1975 relate to the applications of
appellants Thakur Prasad Sao and others for reduction of the licence
fees for outstill liquor shops at Gua, Noamandi, Kiriburu,
Andheri,
Goickara, Patajai and Dangusposi for 1974-75. In these cases the
licensees were T. P. Sao or his relations or employees_
They claimed
that they incurred a loss of Rs. 55,874.79 at Gua, of Rs. 26,651.45
at Noamandi, of Rs. 39,389.53 at Kiriburu of Rs. 35, 169.40 at
Andheri, of Rs. 11,649.87 at Goekera, of Rs. 11,705.95 at Pataja1
and of Rs. 11,657.21 at Dengusposi.
The appellants claimed that there was rivalry and enmity with Bishwanath Prasad and his brother who made svcculative bids at the auction, as a result of which the outstill shops were settled for uneconomic
amounts. Their grievance was that the Deputy Commissioner did not
discharge his duty of refusing to allow the manifestly speculative bids
although the percentage of increase in the licence fees ranged between
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T. P. SAO v. BOARD OF REVENUE (Shingha/, !. )
3 7
24 to 130 per cent when for other shops the increase was below 12 per
cent.
The appellants filed application under section 39 of the Bihar
and Orissa Excise Act, 1915, hereinafter referred to as the Act, for
reduction of the fees for the year 1974-75, but they were rejected by
the Board of Revenue.
They then filed the aforesaid writ petitions in
the High Court and have now filed the present appeals because the
petitions have been dismissed by the High Court's impugned judgment
dated March 15, 1975.
These will be
referred
to as
group 'B'
appeals.
A
B
As has been stated, the remaining Civil Appeal No. 1105 of 1975
is also directed against the High Court's common judgment dated J anuary 2, 1975. It relates to the grant of a licence to the appellant for
establishing outstill shops at Mahuadom, Barahi, Asnair. Aksi and
Kabri, in Palamau district.
The appellant applied for a direction for
C
the refund of Rs. 2,71,340/- which had already been realised from him,
and for restraining the realisation of a further sum of Rs. 1,40.680;-
on the ground that there was no quid pro quo for the fee, but without
success.
The High Court has taken the view that the amounts in question were not due on account of fees, but were payable for leases of
the exclusive privileges which had been granted to the appellant in respect of the ourstills.
D
It-is in these circumstances that these appeals have come up for
consideration before us.
As has been stated, the controversy in these appeals relates to the
grant of licences for establishing outstill shops which are also known
as "jalti bhattis".
That system has been described in paragraph 253
E
of the Bihar and Orissa Excise Manual, Volume IIT, hereinafter referred to as the Manual, as follows :-
"By this system a certain number of stills for the manufacture of country spirit are allowed within a certain area.
The holder of an outstill licence pays a certain sum per mensem for manufacturing country spirit in his outstill and selling
it by retail on his premises. No attempt is made to regulate
the strengths or the prices at which spirit is manufactured or
sold."
It has been stated in para$raphs 254 and 255 of the Manual that no
definite area is fixed within which each outstill has the "monopoly of
F
supply of country spirit", but their number is regulated according to
G
rules, and five miles is taken roughly as the minimum distance of one
outstill from another.
It has been argued on behalf of the appellants that what was granted
to them was not the exclusive privilege of manufacturing and selling
country liquor in retail, in the areas for which the licences were granted, and that the High Court erred in holdiqg that such an exclusive
H
privilege had been granted under section 22 of the Act.
It has been
urged that the licences in question fell within the purview of section 30
of the Act.
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SUPREME COURT REPORTS
[1976] 3 s.c.R.
We have described the essential features of the outstill svstem and
there can be no doubt that the holder of a licence under· the s'ystem
acquires the right to manufacture country spirit in his outstill and sell
it by retail ''in his premises'· without any restriction on the strength
or price at which the spirit is manufactured or sold.
Moreover he has
the monopoly of manufacturing and supplying country liquor within
his area.
The right is therefore clearly an exclusive privilege within
the meaning of section 22(1) (d) of the Act and it is futile to contend
that the licences in question were merely licences for the retail sat\: of
'pirit for consumption on the vendor's premises within the meaning of
section 30 of the Act.
The High Court was therefore quite correct
in taking that view.
It may be mentioned that the appellants have not produced their
licences in support of the contention that exclusive privilege of the
nature referred to above was not granted to them even
though the
licences were for establishing outstills in the area covered by them. It
is however not disputed that the licences were granted in Form 30
(Volume II, Part I, Bihar and Orissa Excise Manual) on the condition
that the appellants would pay to the government, in advance, the
monthly fee mentioned therein,
It is nobody's case that the licences
were cancelled or suspended under section 42 of the Act for any of
the reasons mentioned in the section, or that the licences were withJrawn under section 43 so as to entitle the appellants to remission ol'
the fee payable in respect of them or to payment of compci1sation in
addition to such remission, or to refund of the fee paid in advance. It
is also not the case of the appellants that they surrendered their licences
within the meaning of sub-section (I) of section 44 so as to justifv the
remittance of the -fee 11ayablc bv them, or paid by them in advance.
In fact it has clearly been provided in sub-section (2) of section 44
that the provisions of sub-section ( 1) 'shall not apply in the case of a
licence for the sale of any country liquor in the exercise of an exclusive
privilege granted under section 22. It is true that in its judgment
under appeal (in Civil Appeals Nos. 824-827 of 1975) the High
Court has observed that the petitioner before it was at liberty to surrender the license, but it appears that in taking that view it did not
notice sub-section (2) of section 44 even though it had held that what
was granted was an exclusive privilege under section 22.
The licences
of the appellants therefore remained in force for the periods fo< which
they were granted and, by virtue of the express provisions of section 45,
they could have no claim to compensation.
In such a situation, counsel for the appellants have placed considerable reliance on paragraph 12 I of the Manual and have argued that
the Hi£h Court erred in taking the view that the instructions contained
in it hod no statutory force ai]d its benefit was not available to the appellants.
Reliance in this connection has been placed on Sukhdev
Singh and others v. Bhagatram Sardar Singh R(1ghuva11shi and anQther( '). Lalju Dubey and others v. Union of India and
others(')
Union of India v. K. P. Joseph and others('),
(I) [1975] 3 S.C.R. 619.
(21 [1974 2 S.C.R. 249.
(3) [1973] 2 S.C.R. 75.
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T. P. SAO v. BOARD OF REVENUE (Shinghal, J.)
39
·Paragraph 121 of the Manual states, inter alia, that a person whose
bif,i has been accepted by the presiding officer at the auction must pay
the sum required on account of advance fee immediately.
It states
further that the purchaser would be liable for any loss that may acerue
to government in case it becomes necessary to resell the shops for a
lower sum in consequence of his failure to pay the sum at the time of
the sale.
Then there is the following sub-paragraph on which reliance
has been .Placed by counsel for the appellants :
"Deposits will be returned to a person to whom a licence
may be subsequently refused because the Magistrate declines
to grant him a certificate, or because he is unable to obtain
suitable premises and satisfies the Collector that he has made
bona fide endeavour to secure such or if a licence be refused
for any other adequate reason."
It would thus appear that the sub-paragraph deals with the "deposits"
made immediately on account of advance fees, the consequences of the
failures to make such payment and the return of those "deposits" to
the· person to whom the licence may subsequently be refused because
(i) the Magistrate declines to grant him a certificate or because he is
unable to obtain suitable premises in spite of his bona fide endeavours
or (ii) for any other adequate reason.
But it was not the case of the
appellants that the licences were "subsequently refused" to them for
any reason whatsoever.
So even if it were assumed, for the sake of
argument, that the instructions contained in paragraph 121 were binding on the authorities concerned, that would not matter for purposes
of the present controversy as it does not relate to refund of the dcpo·
sits referred to in paragraph 121. In this view of the matter, it is not
necessary for us to examine here the larger question whether the instructions contained in the Manual were made under any provision of
the law and created any rights in favour of persons whose bids were
accepted at public auctions of the shops. It may be mentioned that
counsel for the appellants have not been able to refer to a11y other
provision of the law under which the appellants could claim remission
of .the price or the consideration for the exclusive privilege of manufacturing and selling country liquor.
It has however been argued that as appellant Ayodhya Prasad did
not· succeed in locating the outstill shop at Bharbharia in spite of his
best ·efiorts, and he was also not successful in locating it at Chittimitti, he was not liable to pay the fee.
It has been pointed that even
the approval for locating the shop at Chitimitti was withdrawn by the
Superintendent of Excise on October 6, 1966, and Ayodhya Prasad's
case for remitting the sum of Rs. 43,800/- was recommended by the
Deputy Commissioner of Singhbhum on May 3. 1967 on the ground
that be could not open the shop for reasons beyond his control.
It has
therefore been urged that there was no lack of bona fides on t~e part
of the appellant and it was a matter of no consequence that he did not
surrender his licence. .
,
It will be recalled that it was an incident of the outstill system that
the holder of an outstill licence was allowed to manufacture co11ntry
4-390SCl/76
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SUPREME COURT REPORTS
[1976] 3 S.C.R.
spirit within a "certain area" and he paid a certain sum of money per
mensem for manufacturing country spirit in his outstill and "selling it
by retail on his premises". It was ti1erefore permissible for appellant
Ayodhya Prasad to locate the shop at Bharbharia or at some other
suitable place within his area, with the permission of tile Collector.
The notice which had been issued for the public auction is on the
record and condition No. 5 thereof expressly states that the department
would not be responsible for providing the place for the location or
the outstill.
Moreover it was expressly stated that the outsti!l at Bharbharia would be settled purely as a temporary measure on condition
that an undisputed sit~ was made available for it.
There is therefore
nothing wrong with the view taken by the High Court that the responsibility for finding a suitable site was of the appellant, and there.is no
justification for the argument that nothing was payable by him because
he could not locate the shop in spite of his best efforts. It may be that
the Deputy Commissioner recommended his case for remission, but that
would not matter when the appellant was liable to pay the money
under the law governing his licence. The appellant in fact retained the
licence alt through and continued to make the highest bids at the subsequent public auctions for the vears 1967-68, 1968-69 and 1969-70 and
thereby prevented others frori1 undertaking the responsibility of cstabJishin~ the outstill and paying the price admissible to the department.
As has been Stated, the approval for opening the outstill shop at Chitl.imitti, was withdrawn on October 6, 1966, and the demand for the
licence fee was made on January 9, 1967. Even so, the appellant did
not take any action to save himself from any such liability in the future
and, on the other hand, went on making the highest bids in the
subsequent years and incurring similar liability to pay the price even
though he was not able to establish his outstill anywhere in any year.
It is therefore difficult to reject the contention in the affidavit of the
respondents that there must have been some other rea,on for him to do
so, particularly as the location of his shop was to be on the border o[
the State.
It has also been contended that the High Court erred in holding that
the State Government had the power to require the appellants to pay
the amounts under demand as they represented consideration for the
contracts. It has been argued that this Court's decision in Nashirwar
etc. v. State of Madhya Pradesh and others(1) and Har Shankar and
others etc. v. The Deputy Excise and Taxation Commissioner and others
etc.(') related to the Excise laws of other States and did not bear on
the present controversy.
The argument is however futile for we have
given our reasons for holding that what was granted to the appellants
was the exclusive privilege of manufacturing and se.lling country liquor
within the meaning of section 22(1 )(d) of the Act, and it has been
expressly provided in section 29 that it would be permissible for the
State Government to accept payment of a sum in "consirteration" of
the exclusive privilege under section 22. The decisions of this Court in
Nashirwar's case and Har Shankar's case have set any controversy in
----~~
(I) 11975] 2 S.C.R. 861.
'C) [1975] 3 S.C.R. 254.
,
) _
>
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T. P. SAO v. BOARD OF REVENUE (Shinghal, !. )
4 I
this respect at rest, so that it is well settled that as the State has the exclusive right and privilege of manufacturing and selling liquor, it has the
power to hold a public auction for the grant of such a right or privilege
and to accept the payment of a sum therefor. It was therefore permissible for the State to frame rules for the grant of licences on payment of fees fixed by auction, for that was only a mode or medium
for ascertaining the best price for the grant of the exclusive privilege of
manufacturing and selling liquor.
As has been stated, Group 'B' appeals relate to the claim for
reduction of the licence fees for the liquor shops concerned.
It has
been argued by counsel for the appellants that as the Collector did not
discharge his duty under the instructions contained in paragraph 130
read with paragraph 93 of the Regulations, the Board acted arbitrarily
in refusing the order reduction of the amounts of the fees which were
the subject-matter of the demands under challenge. It has been urged
that the bids were highly speculative and should have been reduced.
It has been strenuously argued on behalf of the respondent State
of Bihar that the instructions contained in the Regulations were not
issued under any provision of the law and could not give rise to any
rigbt in favour of the appellants.
Reference in this connection has
been made to M/s Raman and Raman Ltd. v. The State of Madras and
vthers(1) and R. Abdulla Rowther v. The State Transport Appellate
Tribunal, Madras and others("). It has been pointed out that there
are three volumes of the Bihar and Orissa Excise Manual, 1919. lt
has been stated in the preface to Volume I that it is complete in itscl!
and contains the whole of the law and the rules which have the force
of law "relating to excise opium."
Volume II contains the "whole of
t:1e law and the rules which have the force of law relating to excisable
articles other than opium;" It has been stated in
the preface . to
Volume III that it consists of the Board's "instructions with regard
to excisable articles other than opium" and that references have been
made to the Governmenti Rules and the Board's Rules
having the
force of law.
There is however no such reference to any rule in regard
to instructions Nos. 130 and 93.
But quite apart from the question
whether these instructions were legally enforceable, we have examined
the question whether they could justify the argument that the appellants were cntitled to reduction of the amounts of the fees payable bv
·them.
Instruction No. 93 mentions the circumstances when it would be
advisable to accept bids other than the highest. It states that it is not
an absolute rule that the highest bids must, on every occasion,
be
accepted. It states further that the presiding officer at an auction
"may also refuse bids which he considers to be purely speculative or
which arc the outcome of private enmity", and that what is desired i;
not the highest fee obtaina,ble, but a fee that can fairly be paid out of
the profits of a shop without recourse to malpractices.
There is therefore nothing in the rule which could be said to give rise to a right in
favour of the appellants for reduction of the amounts demanded frolll
them.
Instruction No. 130 merely states that reduction of licence
(I) (1959] Supp. (2) S.C.R. 227.
(2) A.LR. 1959 S.C. 896.
A
B
c
D
E
F
G
H
A
B
c
D
E
F
G
H
42
SUPREME COURT REPORTS
(1976] 3 S.C.R.
fees, during the currency of a licence, can be made by the Board
under section 39 of the Act. It does not therefore advance the case
· of the appellants for, under that section, the Board has been given
that power, "if it thinks fit", to order a reduction of the amount of fees
payable in respect of a licence, "during the unexpired portion of the
grant" which is not the case of the appellants. In fact all that bas
been argued on behalf of the appellants is that as the instructions
contained in the note appended to paragraph 130 of the Regulations have not been complied with, their legal right to claim
the
benefit of the note has wrongly been denied to them.
The
note
reads as follows,-
"Notc-Ordinarily it is not the policy of Government
to allow reduction in excise settlements.
The licensees to
a large extent, have only themselves to thank
if
they
exceed in their bidding the figure which should return them
a reasonable profit under normal conditions, and they arc
not therefore entitled to any reduction of fees as of right. The
observance of this principle is the more im_portant because
it must be remembered tbat each remission is likely to aggravate the evil and encourage speculative bidding in the hope
that should the speculation turn out a failure, Government
will not insist on full payment.
A remission should not bt:
granted merely because working at a dead loss has
been
actually proved.
Each case should be dealt with on its own
merits.
\Vhcrc, for example, it is proved that the Collector
has not lullilkd his duty in refusing to allow manifestly
speculative bids and has failed to stop the bidding when a
figure has been reached which, under normal conditions,
might be expected to return a reasonable rate of profit to
the vendor, the question would be whether the action of the
Collector was so flagrantly opposed to the principles enunciated from time to time by Government as to necessitate
remedial action.
Such action should not take the form of
any promise of resettlement with the existing licensees. It
can only take the form of a reduction in the amount of the
existing licensees.
It should not be very difficult for an officer in a contract
supply area to realise the stage at _which bidd.i~g b7comes
purely speculative. He knows the issues of ~pmt ?urmg the
previous year and the cost to the vendor mcludl!lg duty,
carriage, establishment charges and the li~e, and should thus
be able to estimate the figure beyond which a prudent man
would not bid. If after warning the bidder, that this point
has been reached the latter still wishes to take the risk no
case for remissio~ can arise.
The case is, however, different
where exceptional reasons which would not at the time be
foreseen, operate adversely to the interest of the licensee but
at the same time it is not the duty of Government to. safeguard licensees from the effects of their own imprudence or
ignorance."
•
··"{
•
T. P. SAO V. BOARD OF REVENUE (Shingha/, ].)
43
It would appear that there is nothing in the note to justify the arguA
ment that it gave rise to a right in favour of the appellants to obtain a
reduction of the fees.
As has been pointed out, that was clearly a
matter within the discretion of the Board of Revenue under section
39, and the wordings of the note appended to paragraph 130 could
not overreach that provision of the law.
Moreover,
the
question
whether the circumstances mentioned in the note were at all in existence in the case of the appeals under consideration, was a question
B
-0f fact which could not be tried in these proceedings.
The decision
in Rohtas Industries Ltd. v. S. D. Agarwal and another(') to which
our attention has been invited on behalf of the appellants, can be of
no avail to them.
As has been stated, the writ petition which has given rise to Civil
Appeal No. 1105 of 1975 raised the question whether the refund of
fees claimed by the appellant was permissible on the ground that there
was no quid pro quo for the same. The High Court has rightly
rejected that contention for the reason that the amounts in question
were payable for the licences which had been granted for the exclusive
privilege in question and, as has been shown, that argument is no longer available to the appellant in view of this Court's decisions in
Nashirwar's case (supra) and Har Shankar's case (supra).
There is thus no force in all these appeals and they are hereby
dismissed with costs. It is however order!!d ihat, as has been agreed
by the Advocate-General, the authorities concerned would recover the
amounts in question in instalments spreading over a period of three
years in case of those appellants who are able to furnish security for
payment within that period.
P.B.R .
Appeals dismissed.
(I) [1968] 3 S.C.R. !08.
c
D
E