Supreme Court of India
MADRAS CITY WINE MERCHANTS' ASSON. AND ANR.versusSTATE OF TAMIL NADU AND ANR.
- Citation
- 1994 INSC 289
- Decided
- 27 July 1994
- Disposal
- Dismissed
- Bench
- S MOHAN
Holding
The Bar Rules and Retail Vending Rules are separate statutes; no legitimate expectation of renewal arose, and the repeal of the Bar Rules is a legislative act not amenable to the doctrine of legitimate expectation or natural‑justice constraints.
Summary
The appellants, licence holders for retail vending of Indian Made Foreign Spirits, were allowed to obtain bar licences under the Tamil Nadu Liquor (Retail Vending in Bar) Rules, 1992. After law‑and‑order problems, the State of Tamil Nadu rescinded those Bar Rules by a government order, effectively terminating the bar licences. The appellants contended that they had a legitimate expectation of renewal and that the repeal was arbitrary, violating Article 14 and Section 8 of the Tamil Nadu General Clauses Act. The Supreme Court held that the Retail Vending Rules and the Bar Rules are distinct regulatory schemes, that no express promise or enforceable right of renewal existed, and that the doctrine of legitimate expectation applies only to administrative decisions, not to legislative repeal. Consequently, the repeal was a valid exercise of legislative power, not subject to natural‑justice requirements, and the appeals were dismissed.
Issues considered
- Whether the Retail Vending Rules, 1989 and the Bar Rules, 1992 form an integrated scheme.
- Whether the appellants have a legitimate expectation of renewal of bar licences.
- Whether the rescission of the Bar Rules is arbitrary and violative of Article 14 of the Constitution.
- Whether Section 8 of the Tamil Nadu General Clauses Act can be invoked to protect the appellants' rights.
- Whether legislative action, including repeal of subordinate legislation, is subject to principles of natural justice.
Legislation cited
Subjects
administrative lawlegitimate expectationlegislative repealnatural justiceArticle 14Tamil Nadu Prohibition Actlicensingpolicy change
Judgment
MADRAS CITY WINE MERCHANTS' ASSON. AND ANR. A
v.
STATE OF TAMIL NADU AND ANR.
JULY 27, 1994
(S. MOHAN AND M.K. MUKHERJEE, JJ.j B
Administrative Law :
Doctn·ne of legitimate expectation-May arise in apress promise,
regular practice and administrative decision-Change of policy by legisla- C
tion-17tis doctrine cannot be invoked-Tamil Nadu Liquor (Retail vending
in Bar) Rules, 1992.
' The appellants are licence holders to carry on business in the retail
vending of Indian made foreign spirits (I.M.F.S.). Persuant to repre-
sentation from the appellants, the respondents framed Tamil Nadu Liquor D
(Retail vending in Bar) Rules 1992 (Bar Rules) which permitted them to
have Bars attached to their shops.
As the drinking in the Bar led to law and order problems, the Bar
Rules were rescinded by the respondents. The appellants challenged this
decision before the High Court but were not successful. Aggrieved by the E
High Court's judgment, the appellants preferred the present appeal.
On behalf of the appellants it was contended that a privilege once
accrued cannot be taken away; that the rules relating to retail trade in
IMFS and the rules relating to sale in Bars formed an integral scheme; F
and that the change in policy affected their legitimate expectation.
On behalf of the respondents it was contended that it is always open
to a State to change its policy; that Bar licence is a privilege so right to
renewal does not arise; and that legislative action is not subject to natural
justice. G
Dismissing the appeals, this Court
HELD : 1. The Retail vending rules and the Bar Rules are two
separate sets of rules. It is incorrect to contend that both these Rules form
an integrated scheme. Merely because for obtaining the Bar licence, one H
281
282 SUPREME COURT REPORTS (1994] SUPP. 2 S.C.R.
A must bea holder of retail vending licence, they cannot become integrated
schemes. Each set of Rules take care of different situations. (300-E]
State of M.P. v. Nandlal Jaiswal, (1984] 4 SCC 566, held inapplicable.
2. It is clear that legitimate expectation may arise if there is an
B express promise given by a public authority; or because of the existence of
a regular practice which the claimant can reasonably expect to continue;
such an expectation must be reasonable. (301-F]
State of H.P. v.Kai/aslt Cltand Mahajan, (1992] Supp. 2 SC 351; Food
Corporation of India v. M/s. Kamdhemt Cattle Feed Industries, JT (1992) 6
C S.C. 259 and Union of India v. Hind1istan Development Corporation, JT
(1993) 3 S.C. 15, relied on.
Council of Civil Service Unions v. Minister for tlte Civil Services, (1984]
3 All ER 935 and Halsbury's Laws of England, Vol. 1(1) Fourth Edition
D para 81 at pp 151-152, referred to.
3. The licence under the Bar Rules is for a period of one year which .
could be renewed by a payment of a privilege amount as lixed by the State
Government. Therefore, there is no room for any expectation. At best, it
could be a hope. Long before the Bar licensee could apply for renewal the
E policy decision has been taken not to renew. It is clear that there was
absoJutely no promise of renewal at all. (312-E-F]
4. The Bar Rules have been repealed by exercise of the powers under
Sections 17C, 17D, 21 and 54 of the Tamil Nadu Prohibition Act, ·1937.
Therefore, this is a case oflegislation. The doctrine of legitimate expecta-
F tion arises only in the lield of administrative decisions. There is no
possibility of invoking the doctrine as against the legislation. (314-C-D]
Supreme Cowt Advocates - on - Record Association v. Union of India,
(1993] 4 SCC 441 and R. Vijaykumar v. The Commissioner of Excise, JT
G (1993) 6 S.C. 325, held inapplicable.
5. It is a settled principle that legislative action, plenary or subor-
dinate, is not subject to natural justice. When the consumption of liquor
in Bars resulted in law and order problems, certainly in public interest the
State could repeal the grant of Bar licences. There is nothing un-
H reasonable. (315-E, 316-D]
WINE MERCHANTS' ASSON. "· STATEOFT.N. [MOHAN,J.] 283
Indian Express Newspapers (Bombay) Pvt. Ltd. v. Union of India, A
(1985) 2 SCR 287, relied on.
:
Vasantkwnar Radhakishan Vohra v. Board of Tmstees of the Pon of
Bombay, [1991) 1 SCC 761, held inapplicable.
6. If no right or privilege in the matter of Bar licences could operate B
beyond 31.5.1993, the benefit of Section 8 of the Tamil Nadu General
Clauses Act, cannot be had.
CIVIL APPELLATE JURISDICTION : Civil Appeal No. 4981 of
1994 etc etc.
c
From the Judgment and Order dated 30.6.93 of the Madras High
Court in W.A. No. 658 of 1993.
K. Parasaran, R.K. Garg, A.Sasidharan, P.N. Ramalingam, V. Balaji
and A.T.M. Sampath for the Appellants.
D
Umapathy, K. Swami and Ms. Pragati for the Appellant in C.A.No.
4982/94.
K.K. Mani for the Petitioner in W.P. Nos. 648/93.
V.R. Reddy, Additional Solicitor General, G.L. Sanghi and P.R. E
Seetharaman for the Respondents.
The Judgment of the Court was delivered by
MOHAN, J. Leave granted.
F
The first appellant in C.A. No. 4981 of 1994 arising out of SLP(C)
No. 9854 of 1993 is an Association registered under the Societies Registra-
tion Act. The members of the association have been granted licences to
carry on business in the retail vending of India made foreign spirits
(hereinafter referred to as '1.M.F.S.'). G
The second appellant is a licensee of l.M.F.S. Shop No. 336 at No.
7, Thyagaraja Road, Madras - 17 for the year 1992-93.
The respondent, the Government of Tamil Nadu framed the Tamil
Nadu Liquor (Licence and Permit) Rules 1981. Under these rules, Indian H
284 SUPREME COURT REPORTS (1994J SUPP. 2 S.C.R.
A made foreign spirit and foreign liquor was to be sold only by persons who
are granted licence for personal consumption. In the year 1989, the
Go\'ernment of Tamil Nadu decided to grant the pri\'ilege of selling by
retail of l.M.F.S. and Beer through auction/tender system. Accordingly, the
Gmcrnment framed Tamil Nadu Liquor (Retail Vending) Rules 1989 by
G.O. Ms. N. 506 Home (Prohibition) dated 15.4.1989. In the auction. the
B successful bidder was granted the licence to carry on the business of
\'ending I.M.F.S. in retail in their respecti\'e shops. The licence was valid
for a period of one year. Under the said Rules, it was pro\ided for a
renewal of the licence for two successi\'e years on the licensee offering to
pay 15~·i and 10% respectil'ely more than the privilege amount at which
C the sale was confirmed in his fa\'our during the pre\ious years. Rule 13
contained all these clauses. Under Rule 14(3), a provision was made that
it was open to the Licensing Authority to refuse the renewal by an order
recording the reasons for refusal. However, before such refusal, the Licens-
ing Authority was obligated to give a reasonable opportunity to the licensee
D of being heard.
The successful bidders obtained licences for the year 1989-90 and
carried on the business. Most of them obtained renewal for the subsequent
excise year 1991-92.
E The Government issued orders in G.O. Ms. No. 90 Prohibition dated
21.4.1992 to the effect that fresh auction may be conducted for all the
liquor retail vending sbops whose licence p<:riod expires on or before
31.5.1992 as well as those licence period expires on or after 31.5.1992 by
restricting the period of licence to 31.5.1992 and refunding the propor-
F tionate portion of the pri'1lege amount. This course was adopted in order
to facilitate the Government to evolve fresh scheme of upset price for
auctioning of the liquor retail vending shops in the State.
The Notification also pro\ided that the licence to be issued for the
year 1992-93 shall be renewed for the second and third years after collect-
G ing increased pri\ilege fees. The prescription relating to increased fees was
pro'1ded under Rule 14(1) and (2) of the 1989 Rules made under the
Tamil Nadu Prohibition Act, 1937. An ordinance was passed terminating
the validity of licences which enured beyond 31st May, 1992 with the expiry
of the said period. Subsequently, Tamil Nadu Act 42 of 1992 came into
H force with from 12.5.92. By this Act Section 23(b) of the Tamil Nadu
WINE MERCHANTS' ASSON. '"STATE OFT.N [MOHAN.J.[ 285
Prohibition Act, 1937 was substituted. In accordance with G.O.Ms. No. 90, A
Prohibition, dated 21.4.92, auctions came to be conducted. The successful
bidders were issued the licences. At that slagc. the (Jo\'crnrnent recch·ed
representations form these dealers for the establishment of a bar within or
adjoining licence premises. The Go\"crnmcnt fnr\\'arde<l these repre-
sentations to the Commissioner of Prohibition and Excise an<l obtained
B
necessary recommendations. Thereafter, the (Jo\·crnment framed Rules by
G.O.Ms. No. 99, Prohibition, dated 26th May, 1992 known as Tamil Nadu
Liquor (Retail Vending in Bar) Rules, 1992. Those Rules permitted to
open a Bar \Vithin or adjoining licence premises. These Rules came into
force on !st June, 1992. Rule 3 prm·ides for grant of pri>ilege by issue of
license to a person holding a licence granted under Rule 13 of the 1989 c
Rules for retail vending of liquor in the Bar. The Rules stated retail
vending of liquor in open bottles, glasses or pegs for consumption in the
Bar. Rule 4 required every person holding a licence granted under Rule
13 of 1989 Rules and who intends to obtain the privilege of retail vending
of liquor in the Bar shall make an application in the prescribed form to D
the Licensing Authority for the grant of privilege and issue of licence for
retail vending or liquor in the Bar. Every liecensee o.f retail l.M.F.S. shop
was entitled to apply for and obtain a Bar licence on payment of a licence
fee and the privilege amount ranging from Rs. 18,750 to Rs. 75,000 depend-
ing upon the area in which the shop was located.
E
The case of the appellant is, in order to obtain the privilege of
vending l.M.F.S. in retail for the excise year 1992-93, the members of the
first appellant Association increased their offer. This huge offer was to
enable them to have a bar attached and thereby increased the volume of
sale of liquor. On obtaining licences under retail vending rules, the mem- F
bers of the Appellant association spent considerable sums of money for
acquiring the adjoining premises to locate the Bar in accordance with the
Bar Rules. They were carrying on business in accordance with the rules
with the fond hope of making good the investment and also earn a profit
during the period to come.
G
It appears that the Government received various complaints. The
drinking in the Bars led to law and order problem. Therefore, by impugned
G.O. Ms. No. 44, Prohibition and Excise dated 33.1993, the Tamil Nadu
Liquor (Retail Vending in Bar) Rules 1992 were rescinded with effect from
1.6.1993. The said G.O. was challenged before the High Court of Madras H
286 SUPREME COURT REPORTS (1994] SUPP. 2 S.C.R.
A in W.P. No. 7776/93. The writ petition was dismissed on the ground that
the Court could not interfere with the policy decisions taken by the State.
Aggrieved by the same, Writ Appeal No. 658/93 was preferred. By the
impugned judgment dated 13.6.1993, the writ appeal was dismissed holding
that the policy of the Government is one step marching towards the total
prohibition. The appellants could not base their case on legitimate expec-
B tation, nor was their any violation of Article 14 of the Constitution. Thus,
the present civil appeals.
•I
Ramanathapuram District Liquor Retail Sellers' Association has
preferred Writ Petition (Civil) No. 648 of 1993 under Article 32 of the
c Constitution
., of India, challenging G.O. Ms. No. 44 dated 3.3.1993.
Mr. K. Parasaran, learned senior counsel, appearing for the appel-
lants inbvil Appeal No. 4981 of 1994 arising out of SLP(C) No. 9854 of ,•
1993 submits that change of policy must pass muster of Article 14 of the
Constitution of India. When the State Government has permitted the sale
·D of liquor,' the change of policy can be tested on the touchstone of Article
14 of the,Constitution of India. In S.C. Advocates-on-Record Association v.
U11io11 of I11dia, [1993] 4 SCC 441 at page 703, this Court has taken the view
that due consideration of every legitimate expectation in the decision-
making process is a requirement of the rule of non-arbitrariness. Again, in
E Kumari_ Shrilekha Vidyarthi v. State of UP., [1990] Supp. 1 SCR 625 at 650
this Court has taken the view, a change in policy should not be done
arbitrarily.
In support of this submission, reliance is placed on Halsbury's Law
of Englqnd Vol. 1(1) Fourth Edition, Para 81 at page 151.
F
In this background of law, the facts require to be anaylised.
By G.O. Ms. No 90, Prohibition and excise dated 21.4.92 retail selling
of liquor was permitted. Such licence holders were entitled to renewal as
well. On their representations the bars came to be permitted. Thereafter
G G.O.Ms. No. 99 dated 26.5.92 came to be passed enabling these licence
holders to open Bars. It is noteworthy that under both the sets of Rules a
provision is made for renewal. It was in the hope that Bar licence will be
renewed for the subsequent years as well, each licensee spent huge
amounts in opening the Bars. In such a case, the plea of legitimate
H expectation certainly will came to the rescue of the appellants. No doubt,
WINE MERCHANTS' ASSON. v. STATEOFT.N. (MOHAN,J.) 21!,7
the State can change its policy but it cannot be done arbitrarily as held in A
the above cases. Raising a hope in the retail vendors that they would be
allowed to carry on vending in Bars, renewal being a matter of course,
suddenly to deny that privilege is arbitrary.
A privilege _once accrued cannot be taken away. This is a clear
implication of Section 8(3) of the Tamil Nadu General Clauses Act. More B
so, in a case like this where the Rules are prospective in nature such a
legitimate expectation cannot be denied. Section 4 of the Tamil Nadu
General clauses Act does not, in any way, militate against the operation of
Section 8. If retail vending of liquor is permitted there cannot be anything
wrong in selling the same liquor in the Bar. c
Lastly, the learned counsel cites R. Vijaykumar v. The Commissioner
of Excise, JT (1993) 6 S.C.325 and submits that even in policy matters
Article 14 of the Constitution will apply.
Mr. R.K. Garg, learned counsel; appearing for the appellants in C.A. D
No. 4982 of 1994 arising out of SLP(C) No. 9957 of 1993 submits as follows:
The Prohibition Act provides for complete prohibition. However, the
Government has reserved to itself the power to grant exemption in order
to augment financial resources. The Government of Tamil Nadu in the year
1992-93 decided as a policy to provide for Bar licence attached to the retail E
shops in order to augment revenue on auctions of retail shops. This change
in policy was notified before the auction for the year 1992-93 stating only
retail vendors will be eligible for Bar licences. Out of the successful retail
shop vendors 300 and odd applied and secured Bar licence in accordance
with the definite condition of auction held in 1992-93 that licence for Bar F
attached to the shop will be granted after application was received and the
prescribed fee was paid. The State of Tamil Nadu has, by this integrated
new policy, escalated the bid amounts, in addition earned Bar LicenceJees.
Thus, it is submitted that the Rules relating to retail vending of IMFL and
the Rules for sale of liquor in Bars attached to the shop formed a single G
integrated scheme. Such a trade was to go on for a period of 3 years with
automatic yearly renewal on terms specified without fresh auction. The
Government cannot destroy the integrated character of trade. This ar-
bitrary action has resulted in unjust enrichment on the part of the Govern-
ment and breach of faith bordering on fraud. No demonstrable basis was
disclosed for such an action. H
288 SUPREME COURT REPORTS (1994] SUPP. 2 S.C.R.·
A The Government illegally and arbitrarily delinked the retail sale from
sale in the Bars. Such an integrated policy could not be so changed as to
impose unjust back-breaking burdens on the retail vendors. This amounts
to destruction of fairplay. It is also is violative of Article 14 of the Con-
stitution of India.
B The impugned Notification dated 3rd of March, 1993 has to be tested
on the following grounds :
1. Whether the Bar Rules could be rescinded arbitrarily?
2. Whether both the sets of Rules form integrated policy?
c
3. The State having made the retail vending licences part with huge
amount in the hope they could have Bars if not bound to honour its
commitment.
D A change in policy affects not merely legitimate expectations but also
credibility of State to act fairly and reasonably.
The impugned Notification is also arbitrary because no examination
was under taken warranting change of policy. No committee was ap-
pointed. No report was received before tlie impugned Notification was
E issued the State has proceeded on unfounded apprehensions relating to
law and order.
It is violative of Article 14 of the Constitution because -
(i) It is destructive of the principles of natural justice ;
F
(ii) it is not based on relevant considerations and fair determination
of changed circumstances justifying prejudice and injury to the lawful
interest of the retail vendors;
'
(iii)No damage to public policy is established requiring all Bars had
G to be closed.
In support of the above submissions Mr. R.K. Garg, learned counsel,
cites State of M.P. v. Nandla/ Jaiswal, (1986] 4 SCC 566. On the strength
of this ruling it is submitted that an integrated policy cannot be broken.
H On the questi~n of legitimate expectation reliance is placed on
WINE MERCHANTS' ASSON. v. STATEOFT:N. [MOHAN,J.) 289
Council of Civil Service Unions v. Minister for the Civil Se1vice, (1984) 3 All A
ER 935.
Mr. G.L ;Sanghi, learned counsel, appearing for the State of Tamil
Nadu traces the history relating to prohibition in Tamil Nadu. On 16th of
July, 1991, the present Government, as a first step towards implementation
of total prohibition policy in the State, brought complete prohibition in
B
relation to manufacturing and trading of country liquor. This was done
because the State took note of the serious social evil uprooting the family
life of very many poor people in the State. Thereafter G.O.Ms. 90 dated
21.4.92 was passed enabling auction of liquor retail vending shops. At that
point of time retail vending shops were not allowed to have Bar attached C
to the licence shops. They were to sell the liquor only in bottles. In the
earlier year the total ·number of retail vending shops was 3, 049 whereas in
the year 1992-93 the number of shops increased to 4, 216. There was also
an increase in the revenue from 32 crores to 98 crores. This increase was
due to the commercial expectation of the bidders and the· heavy competi- D
tion among them.
. The Government also thought it fit that such shop owners who have
licence might be allowed to have Bars attached to the shops. It was in this
view the Bar licence was granted to those persons who held the licence for
shops under Tamil Nadu (Liquor Retail Vending) Rules, 1989. The E
Government received various representations that such running of Bars
attached to retail· vending shops had become nuisance to the public par-
ticularly to the woman folk. Therefore, the Governor of Tamil Nadu in his
speech made in the Legislative Assembly on 4.2.93 announced the policy
decision of the Government to abolish Bars. It was under these circumstan- F
ces, G.O.Ms. No. 44 dated 33.93 came to be passed discontinuing both the
grant and renewal of Bar licences. This G.O. was unsuccessfully challenged
before the High Court. It is submitted that only under the authority of rules
the vendor was empowered to sell liquor. There are two different sets of
Rules one of the year 1988 dealing with the retail vending of IMFS; 1992
Rules dealing with Bar licences. There is no question of these two different G
sets of Rules becoming an integrated scheme. That being so, the principle
of Nantilal's case (supra) cannot apply. In the case of a statutory rule, no
question of arbitrariness would arise. It is always open to State to change
its policy. If the contention of the appellants is accepted it_ would amount
to fettering the Seate from repealing a Jaw. This Court in Ghaziabad H
290 I 1 SUPREME COURT REPORTS [1994) SUPP. 2 S.C.R.
A Development Authority v. Delhi Auto & General Financial Pvt. Ltd., JT
(1994} 3 S.C. 275 has clearly pointed out the inapplicability of the doctrine
of legitim.ate expectation. The same is the position here.
As regards the principle that the Government cannot claim any
immunity from the doctrine of promisory estoppel and there is no obliga-
B tion to act fairly and justly, reliance is placed on Vasantkwnar Radhakishan
Vohra v. Board of Trustees of the port of Bombay, [1991) 1 SCC 761.
The next submission of the learned counsel is, legislative action
whether plenary or subordinate is not subject to natural justice. It has been
C so laid dci\Vn in Union of India v. Cyhnamide India Ltd., AIR (1987} SC
1802. To the same effect in Indian Express Newspapers (Bombay) Pvt. Ltd.
v. Union of India, [1985) 2 SCR 287 at page 347. The principle that
subordinate legislation cannot be questioned on the ground of violation of
the principle of natural justice, has been reiterated. In the case of liquor
vending licences one can expect to have renewal on payment of 15 per cent
D or 10 per" cent, as the case may be. But in a Bar licence there is no
possibility of renewal of the privilege because Rule 6(1}(c) States ; "A
privilege.amount as may be fixed by the Government in this behalf." If,
therefore, it is a privilege no question of right to renewal arises. Lastly, it
is submitted that no representation was made. Therefore, the quest.ion of
E promisory estoppel cannot arise.
Mr. V.R. Reddy, learned Additional Solicitor General, submits that
there is no scope in this case for contending that the prineiple of legitimate
expecta6on would arise. Union of India v. Hindustan Development Corpora-
tion, (1993] 3 sec 499 is an authority for the proposi6on that this principle
F applies only to administrative decisions. When the State completely
prohibited the manufacture and sale of country liquor it brought a windfall
to those selling IMPS. This accounts for the increase in the excise revenue.
Support_ing the argument of Mr. G .L. Sanghi that the principle of
G natural justice is not applicable to legislafrle acts H.S.S.K. Niyami v. Union
of India, AIR (1990) SC '2128 is cited.
With· regard to the applicability of Section 8 of the Tamil Nadu
General Clauses Act it is submitted. that the repeal shall not affect the
previous operation of the repealed law, has no application to the present
H case. The. citation in this behalf is Indira Sohanlal v. Custodian of Evacuee
WINE MERCHANTS' ASSON. v. STATE OFT.N. [MOHAN, J.] 291
Property, Delhi, [1955] 2 SCR 1117. A
Before we go into the questions of law arising in this case, we will
briefly trace the legislative history leading to the impuged order.
Thanks to the courage and wisdom of Mr. C. Rajagopalachari
(Rajaji), prohibition came to be introduced in his own native District of B
Salem in the year 1937 by enacting Madras (later Tamil Nadu) Prohibition
Act of 1937. By stages it was extended throughout the State in 1948. So
much so the Gandhian ideal of the abolition of evil of drinking was realised.
To recall the father of the Nation Mahatma Gandhi :
"Nothing but ruin stares a nation in the face that is prey to the drink C
habit."
In this Act two important Sections for our purposes are sections 54
and 55. They are quoted in full- :
"54. Power to make Rules. D
(1) The State Government may make ru/esfor the purpose of
canying illlo effect the provisions of this Act.
(2) In particular and without prejudice to the generality of the E
foregoing provision, the State Government may make rules •
(a) for the issue of licences and permits and the enforcement
of the conditions thereof :
(aa)prescribing the penalty for wastage or shortage of spirits
F
in excess of the prescribed limits at such rate not exceeding twice
the normal rate of excise duty or fee that would be payable on the
quantity of the spirits lost in excess of the prescribed limits;
NOTES : Clause (aa) inserted by Act 68 of 1986
G
(b) prescribing the powers to be exercised and the duties to be
performed by paid and honourary Prohibition Officers in fur-
therance of the objects of the Act;
(bb) prescribing the ways in which the duty under section 18-A
may be levied; H
292 SUPREME COURT REPORTS (1994] SUPP. 2 S.C.R.
A NOTES Clause (bb) inserted by Act 19 of 1948
( c) Determining the local jurisdiction of police and Prohibition
Of~cers in regard to inquiries and th"e exercise of preventive ,and
investigating po\vers;
B '(d) authorizing any officer or person to exercise any power or
perform any duty under this Act;
.. ( e) prescribing the powers and duties of prohibition committees
and the members thereof and the intervals at which the members
of such committees shall make their reports ;
c
(t) regulating the delegation by the Commissioner or by collec-
tors or other district officers of any powers conferred on them by
or under this Act;
(g) regulating the cultivation of the hemp plant, the collection
D
of those portions of such plant from which intoxicating drugs can
be manufactured and the manufacture of such drugs therefrom;
(h) declaring how denatured spirit shall be manufactured;
E (i) declaring in what cases r• classes of cases and to what
authorities appeals shall lie from orders, whether original or ap-
pellate, passed under this Act or under any rule made thereunder,
or by what authorities such orders may lie revised, and prescribing
the time and manner of presenting appeals, and the procedure for
dealing therewith;
F
U) for the grant of batta to witnesses, and of compensation for
loss of time to persons released under sub- section (3) of section
38 on the ground that they have been improperly arrested, and to
persons charged before a Magistrate with offences under this Act
G and acquitted;
(k) regulating the power of Police and Prohibition Officers to
summon witnesses from a distance under section 42;
(I) for the disposal of articles confiscated and of the proceeds
H thereof;
WINE MERCHANTS' ASSON. v. STATE OFT.N. (MOHAN,J.) 293
(m) for the prevention of the use of medicinal or toilet prepara- A
lions for any purpose other than medicinal or toilet purposes and
for the regulation of the use of any liquor or drug exempted from
all or any of the provisions of this Act :
(n) for the proper collection of duty on all kinds of liquor or
drugs; B
(nn) for exemption from, or suspension of the operation of any
rule made under this Act;
( o) for all matters expressly required or allowed by this Act to C
be prescribed.
NOTES: Clauses (m (n) (o) instered by Act 8 of 1958 and clause
(nn) added by Act 1 of 1975 with effect from 1.9.1974.
(2-A) A rule or notification under this Act may be made or D
issued so as to have retrospective effect on and from a date not
earlier than, -
(i) the 1st of September, 1973, in so far as it relates toddy; and
(ii) the 1st of September, 1974, in so far as it relates to any liquor E
other than toddy.
NOTES : Sub-section 2-A inserted by Act 1 of 1975.
(iii) the 1st May, 1981, in so far as it relates to the matters dealt
with in sections 17-B, 17-C, 17-D, 17-E, 18-B and 18-C. F
NOTES : Item (iii) added by Act 51 of 1981
Provided that a notification issued under sub- section (1) of
section 16 may have retrospective effect from date not earlier than
1st November 1972 :
G
Provided further that the retrospective operation of any rule
made or notification issued under this Act shall not render any
person guilty of any offence in regard to the contravention of such
rule or the breach of any of the conditions subject to which the
exemption is notified in such notification when such contravention H
294 SUPREME COURT REPORTS [1994) SUPP. 2 S.C.R.
A or breach occurred before the date on which the rule or notifica-
tion is published, as the case may be.
NOTES : The proviso's inserted by Act 68 of 1986
(3) All rules made under this Act shall, as soon as possible
B after they are made, be placed on the table of both the Houses of
the Legislature shall be subject to such modifications by way of
amendments or repeal as the Legislative Assembly may make
within fourteen days on which the House actually sits either in the
same session or in 1nore than one session.
c NOTES : Sub-section 3 added by Act 8 of 1958."
''55. Publication of Rules and Notifications.
All mies made and notifications issued under this Act shall be
published in the Official Gazette and upon such publication, shall
D have effect as it enacted in this Act." (Emphasis supplied)
The operation of the Prohibition Act was temporarily suspended in
August 1971. However, prohibition was re-introduced in August 1972 by
abolition of toddy sbops and in September 1974 by abolition of arrack
shops. Even while the prohibition was enforced the sale of IMFS continued
E
in licenced shops to permit holders.
In May 1981, once again sale of toddy and arrack was permitted. The
manufacture of IMFS was also permitted. Concerning the sale of IMFS the
Tamil Nadu Liquor (Licence and Permit) Rules, 1981 were framed. In the
F year 1989 the Tamil Nadu Liquor (Retail Vending) Rules, 1989 (For short,
Retail Vending Rules) were framed by which the 1981 Rules were repealed
in so far as they related to the retail vending of IMFS and Beer. Rule 3 of
these Rules states the privilege or selling liquor in licence shops would be
available to persons by auction. The privilege amount was determined in
G that auction. The State was enabled under Rule 4(1) to fix the maximum
number of shops to be established in the State.
Prior to the auction, notice of auction in Form No.I has to be
published in Tamil and English dailies. As per Rule any person intending
to participate in the auction has to deposit an earnest money of Rs. 10,000
H in an area falling within the limits of the Municipal Corporation or
WINE MERCHANTS' ASSON. v. STATEOFT.N. [MOHAN,J.] 295
Municipality; a sum of Rs. 7,500 in other areas. Rule 8 requires offer by A
tender in sealed cover as prescribed in form IV. After the confirmation of
sale of privilege the auction pµrchaser has to make an application in form
VI for the grant of licence. The Licensing Authority after verifying various
factors, as may be necessary for satisfying itself; as to the suitability of the
auction purchaser, grants a licence within three days of the order of B
confirmation of sale. The licence so granted shall remain valid for a period
of one year ending with 31st May of succeeding year.
From the above procedure the following is clear :
1. Even if one happens to be the successful bidder in the auction, it C
does not automatically entitle him to a licence.
2. The licencee once granted is valid for only one. year ending with
31st of May of succeeding year. In this regard Rule 14 of the Retail
Vending Rules is relevant which is extracted below :
D
"Renewal of licence -
(1) If a licence intends to renew the licence for the second year
he shall apply at least 30 days before the date of expiry of the
licence for renewal in Form VIII after remitting -
E
(i) an application fee of Rs. 100 (Rupees One hundred only):
(ii) the .licence fee of Rs. 2,500 (Rupees two thousand and five
hundred only); and
(iii) the privilege amount determined at fifteen percent centum F
more than the privilege amount at which the sale of the privilege
was confirmed in the previous year.
(2) If a licensee intends to renew the licence for the third year,
he shall apply at least 30 days before the date of expiry of the G
licence for renewal in Form VII after remitting -
{i) an application fee of Rs. 100 (Rupees one hundred only);
(ii) the licence fee of Rs. 2,500 (Rupees two thousand and five
hundred only) and H
296 SUPREME COURT REPORTS [1994] SUPP. 2 S.C.R.
A (iii) the privilege amount determined ·at ten percent centum
more then the privilege amount at which the sale of the privilege
was confirmed in the previous year.
Proviso omitted.
B (3) If the licensing authority decides not to renew the licence, he
may refuse renewal by an order recording the reasons for refusal:
(Emphasis supplied)
Provided that the licensing authority shall give a reasonable
C opportunity of being heard to the licensee before such refusal.
(4) If a licence is not renewed, the licence fee remitted by the
licensee shall be refunded to him."
What is important to be noted here is, under Rule 14(3) of the said
D Rules the Licensing Authority is empowered either to renew or not to
renew the licence. Therefore, there is no automatic renewal. These Rules
were approved on 15.4.89 by G.0. Ms. 506, Home, Prohibition and Excise
dated 15th April, 1989.
The present Government assumed office in June 1991. On 16th July,
E 1991 complete prohibition of manufacture and trade in country liquor was
imposed. u~doubtedly, this was a step in furtherance of Article 47 of the
Constitution of India. On 21. 4.92, by G.O. Ms. 90 the Government ordered
the auction of retail vending shops throughout the State. The sale of liquor
was to be in bottles. At this stage, no Bar was allowed to be attached to
F the licence shop of retail vending. For the excise year 1992-93 the number
of shops increased and the excise revenue also correspondingly increased.
As rightly urged by learned Additional Solicitor General this increase was
due to the total prohibition of country liquor, namely, toddy and arrack.
The retailers made a representation that they could be allowed to have Bar
G attached to the shops. It was in these circumstances, G.O. Ms. No.99,
Prohibition and Excise Department dated 26th May, 1992 came to be
passed. It must be made clear at this stage that these Rules called Tamil
Nadu Liquor (Retail Vending in Bar) Rules, 1992 deal only with the Bar
regulating the issue of licence and the privilege of retail vending of liquor
in the Bar. The Rules came into force on 1st June, 1992. Under rule 4(a)
H it is only a person holding a licence granted under Rules 13 of Retail
WINE MERCHANTS' ASSON. v. STATEOFT.N. [MOHAN,J.] 297
Vending Rules, 1989 who can make an application for the grant of privilege A
and issue of licence for retail vending of liquor in the Bar.
The privilege amount varied from place to place from Rs. 18, 750 to
Rs. 75,000.
The period of licence was co-terminus with the period of licence B
issued for vending liquor. Rule 6 dealing with renewal of licence is impor-
tant. Clauses 1, 2 and 4 of Rule 6 are quoted hereunder :
"6. Renewal of licence :
1. If the licensee intends to renew the licence for the second C
term he shall apply not later than thirty days before the date of
expiry of the licence issued under rule 4 inform III together with
the following amount :
a. an application for Rs. 100 (Rupees One hundred only);
D
b. a licence fee of Rs. 500 (Rupees Five hundred only)
c. A privilege amount as may be fixed by the State Government
in the behalf.
2. If the licensee intends to renew the licence for the third term, E
he shall apply not later than thirty days before the date of expiry
of the licence renewed, in Form III ......
3. The licensing authority may refuse the renewal of a licence
by an order in writing for reasons to be recorded therein;
F
Provided that the licensing authority shall give a reasonable
opportunity of being heard to the licensee before such refusal."
It has to be carefully noticed that under Rule 6(1)(c) the privilege
amount may be fJXed by the State Government in that behalf. Further there G
is power to refuse renewal; of course, for valid reasons subject to right of
appeal and revision under Rules 16 and 17. On 4th February, 1993 the
Governor of Tamil Nadu made the following address:
"Prohibition as a key issue of State Policy is a Constitutional
directive. Honourable Members of the House are aware that the H
298 SUPREME COURT REPORTS [1994] SUPP. 2 S.C.R.
A Government, under the leadership of the Chief Minister Dr. J.
Jayalalitha, implemented as its first decision the abolition of cheap
liquor shops throughout the State, in keeping with its announced
policy of prohibition, although this involved an annual loss of
revenue of Rs. 390 crores. The drive against bootlegging and illicit
liquor was intensified with the formation of the Prohibition Enfor-
B cement Wing. The Chief Minister's drive against erring officials
resulted in a noticeable reduction in the incidence of illicit liquor.
A massive multi-media propaganda offensive against the evils of
liquor has also been launched. We have decided to give a decisive
edge to the offensive against illicit liquor by strengthening further
c the Prohibition Enforcement Wing at a cost of Rs. 7 crores. With
one enforcement unit in each Police sub division, the Enforcement
Wing will act effectively against the anti-social elements engaged
in the illicit liquor trade. This Government places the highest
emphasis on the welfare of the people, revenue considerations
yielding place to consideration of maximum social good. Members
D
of the House will wholeheartedly welcome the decision of the
Government to withdraw the licences for bars attached to foreign
spirit shops with effect from the excise year commencing from
June, 1993."
E Pursuant to this, the impugned G.O.Ms. 44, Prohibition and Excise
Department came to be passed on 3rd March, 1993. That reads as under:
"Prohibition and Excise (vi) Department
G.0.Ms. No.44 Dated : 3.3.1993
F
Read:-
G.0. Ms. No. 99, Prohibition Excise,
dated 26.5.1992
ORDER
G
The Government have decided to discontinue the grant-
ing/renewal of licences for bars attached to the Indian Made
Liquor retail vending shops under the Tamil Nadu Liquor (Retail
Vending in Bar) Rules, 1992 with effect from the excise year
.H commencing from the 1st Jnne, 1993 .
WINE MERCHANTS' ASSON. v. STATE OF T.N. [MOHAN, J.J 299
2. The following Notification will be published in the Tamil Nadu A
Go1•e111n1e11t Gazette.
Notification
In exercise of the powers conferred by Sections 17-C, 17-D, 21
and 54 of the Tainil Nadu Prohihition Act, 1937 (Tamil Nadu Act B
X of 1937). The Governor of Tamil Nadu hereby rescinds the
Tamil Nadu Liquor (Retail Vending in Bar) Rule~ 1992, with
effect on and from the 1st June, 1993.
(By Order of the Governor)
c
K. Malaisamy
Secretary to Govt."
The effect of the above G.O. is, on and from 1st June, 1993 the Tamil
Nadu Liquor (Retail Vending in Bar) Rules, 1992 came to be rescinded. D
Both the learned Single Judge and the Division Bench of the High Court
under the impugned judgment have upheld the validity of G.O. Ms. No. 44
dated 3rd March, 1993. In the light of the above discussion the correctness
of the following contentions may be examined :
1. Whether the Tamil Nadu Liquor (Retail Vending) Rules, 1989 E
(For short Retail Vending Rules) and Tamil Nadu Liquor (Retail Vending
in Bar Rules, 1992 (for short Bar Rules ) form an integral scheme?
2: Whether the appellants can claim the benefit of the doctrine of
legitimate expection?
F
3. Whether under the impugned G.O. by rescinding of the Bar Rules-
(a) The State has not acted fairly;
(b) violation of Article 14, the action being arbitrary?
G
4. Whether the appellants could claim the benefit of Section 8 of the
Tamil Nadu General Clauses Act?
Point No. 1:
In view of what is stated above, it is clear that privilege of retail H
300 SUPREME COUR:T REPORTS (1994] SUPP. 2 S.C.R.
A vending could only be under licence. Such a licence is obtained after a
successful bid. The mere success in the bid does not ensure the privilege.
Still, as seen above, even after the confirmation of sale the auction pur·
chaser will have to apply in form No. VI to the Licensing Authority fur the
grant of licence along with the requisite fee. It is only after the Licensing
Authority is satisfied as to the suitability of the auction procedure for the
B grant of licence, such a licence is granted. The period of licence is one
year. No doubt, Rule 14 provides for renewal on payment of 15 per cent
than the privilege amount for the first renewal and 10 per cent more for
the second renewal. Here again, there is no automatic renewal because of
the power contained under Rule 14(3) enabling the Licensing Authority to
C refuse. Thus, the Liquor Vending Rules completely take care of vending
providing for each detail.
The Bar Rules under Rule 4(a) lay down a qualification that only a
person holding a vending licence could seek a Bar licence. These Rules
also talk of renewal of licence under Rule 6. As seen above, such a renewal
D is not aut6matic for two reasons : ·
(1) The privilege amount is to be fixed by the State; and
(2) under Rule 6(4) there is a power of refusal.
E These are two sets separate Rules. One which deals with retail
vending of IMFS the other with the Bar. It is incorrect to contend that both
these Rules form an integrated scheme. Merely because for obtaining the
Bar licence, one must be a holder of retail vending licence, they cannot
become integrated scheme. Each set of Rules take care of different situa-
F tions. Therefore, we reject the argument of Mr. R.K. Garg that they form
integrated scheme. Na11d/a/'s case (supra) has no application since that was
a case of an integrated scheme which is not so here.
Poi11t No.2 :
G We will briefly deal with the doctrine of legitimate expectation. It is
not necessary to refer to large number of cases excepting the following few:
On this doctrine Clive Lewis in 'Judicial Remedies in Public Law at
page 97 states thus :
H "Decisions affecting legitimate expectation -
WINE MERCHANTS' ASSON. v. STATEOFT.N.[MOHAN,J.] 301
In the public law field, individuals may not have strictly enfor- A
ceable rights but they may have legitimate expectations. Such
expectations may stem either from a promise or a representation
made by a public body, or from a proviso practice of a public body.
The promise of a hearing before a decision is taken may give rise
to a legitimate expectation that a hearing will be given. A past
B
practice of consulting before a decision is taken may give rise to
an expectation of consultation before any future decision is taken.
A promise to confer, or past practice of conferring a substantive
benefit, may give rise to an expectation that the individual will be
given a hearing before a decision is taken not to confer the benefit.
The actual enjoyment of a benefit may create a legitimate expec- c
tation that the benefit will not be removed without the individual
being given a hearing. On occasions, individuals seek to enforce
the promise of expectation itself, by claiming that the substantive
benefit be conferred. Decisions affecting such legitimate expecta-
tions are subject to judicial review." D
In Cou11cil of Civil Se;vice U11io11s v. Minister for the Civil Service,
(1984] 3 All ER 935 at pages 943-44 it is stated thus :
"But even where a person claiming some benefit or privilege
has no legal right to it, as a matter of private law, he may have a E
legitimate expectation of receiving the benefit or privilege, and, if
so, the courts will protect his expectation by judicial review as a
matter of public law. This subject has been fully explained by Lord
Diplock in O'Reilly v. Mackman, [1982] 3 All ER 1124 = (1983) 2
AC 237 and I need not repeat what he has so recently said. F
Legitimate, or reasonable, expectation may arise either from an
express promise given on behalf of a public authority or from the
existence of a regular practice which the claimant can reasonably
expect to continue. Examples of the former type of expectation are
Re Liverpool Taxi Owners' Association [1972] 2 All ER 589, (1972) G
2 QB 299 andA-G of Ho11g Ko11g v. Ng Yue11 Shiu, [1983] 2 All ER
346 = (1983) 2 AC 629. (I agree with Lord Diplock's view, ex-
pressed in the speech in this appeal, that 'legitimate' is to be
preferred to 'reasonable' in this context. I was responsible for using
the word 'reasonable' for the reason explained in Ng Yuen Shiu,
but it was intended only to be exegetical of 'legitimate'.) An H
302 SUPREME COURT REPORTS [1994] SUPP. 2 S.C.R.
A example of the latter in R v. Hull Prison Board of Visitors, exp. St.
Gennain, 119791 1 All ER 701, 11979] QB 425, approved by this
House in O'Reilly v. Mackman, 11982] 3 All ER 1124 at 1126 =
[1983] 2 AC 237 at 274."
...
'
In Halsbury's Laws of England Vol. 1(1) Fourth Edition Para 81 at
B pages 151:52 it is stated thus:
"81 Legitimate expectations. A person may have a legitimate
expectation of being treated in a certain way by an administrative
authority even though he has no legal right in private law to receive
I
c such treatment. !
O'Reilly v. Mackman, [1983] 2 AC 237 at 275, HL; A-G of Hong I
Kong v. Ng Yuen Shiu, [198~], 2 AC 629, [1983] 2 All ER 346, PC;
Council of Civil Service Unions v. Minister for the Civil Service,
[1985] AC 374, [1984] 3 All ER 935, H.L. The expectation must
l
D plainly be a reasonable one: A-G of Hong Kong v. Ng Yuen Shiu
supra. It seems that a person's own conduct may deprive /
any
expectations he may have of the necessary quality of legitimacy :
Cinnamond v. British Airports Authority, [1980] 2 All ER 368, [1980] ~
~
1 WLR 582, CA.
E The expectation may arise either from a representation or
promise made by the authority,
•
R v. Liverpool Corpn. et p. Liverpool Taxi Fleet Operator's I
Association, [1972] 2 QB 299, [1972] 2 All ER 589, CA; A-G of •
F Hong Kong v. Ng Yuen Shiu, [1983] 2 AC 629, [1983) 2 All ER 346,
PC; Council of Civil Service Unions v. Minister for the Civil Service,
[1985] AC 374 = [1984) 3 All ER 935, HL; R. v. Home Secretary,
et P. Oloniluyi, 11988] Times, 26 November, CA; R. v. Brent London
Borough Council, et P. Macdonagh, [1989] Times, 22 March. Al-
though there is an obvious analogy between the doctrines of
G legitimate expectation and of estoppel, the two are distinct, and
detrimental reliance upon the representation is not a necessary
ingredient of a legitimate expectation; see R. v. Secretary of State
for the Home Department, et p Khan, [1985] All ER 40 at 48, 52,
[1984] 1 WLR 1337 at 1347, 1352, CA; and see para 23 ante. In •
H relation to Inland Revenue extra - statutory concessions and as- I
l
WINE MERCHANTS' ASSON. v. STATEOFT.N.[MOHAN,J.] 303
surances, see R v. A-G, exp !Cl pie, [1986] 60 TC I; R v. HM A
Inspector of Taxes, Hull, exp Brnnfield, [1988] Times, 25 November;
and R v. !RC, exp MFK Underwriting Agencies Ltd., [1989] Times,
17 July; cf Re Preston, [1985] AC 835, [1984] 2 All ER 327, HL.)
including an implied representation,
B
[R v. Secretary of State for the Home Departmelll, exp Khan, [1985]
1 All ER 40, [1984] 1 WLR 1337, CA (setting out criteria for
exercise of discretion in guidance letter given to prospective adop-
tive parents of children requiring entry clearance led to legitimate
expectation that clearance would be granted where those criteria C
were satisfied. See also R v. Pol".)'S County Council, exp Howner
[1988] Times, 28 May; and R v. Brent London Borough Council, ex
p Macdonagh, [1989] Times 22 March. In R v. Brent London
Borough Council, ex p gunning, [1986] 84 LGR 168 the court
appears to have relied in part on what were in effect express or
implied representations by the Secretary of State (contained in D
departmental circulars) that there would be consultation, although
the duty to consult was being imposed upon the local authority.]
or from consistent past practice.
O'Reilly v. Mackman, [1983], 2 AC 237 at 275, [1982] 2 All ER
E
1124 at 1126-1127, HL; Council of Civil Service Unions v. Minister
for the Civil Service, [1985], AC 374, [1984] 3 All ER 935, HL; R
v. Brent London Borough Counci~ exp Gunning, (1986] 84 LGR
168; R v. Secretary of State for the Home Departmen~ exp Ruddock,
[1987] 2 All ER 1025, [1987] 1 WLR 1482. F
It is not clear to what extant a legitimate expectation may arise
other than by way of a representation or of past practice; neither
factor would seem to have been present in R v. Secretary. of State
for Transport, exp Greater London Council, [1986] QB 556 =[1985] G
3 All ER 300. See also note 8 infra. However, procedural duties
imposed as a result of looking at all the surrounding circumstances
will normally be treated as illustrations of the general duty to act
fairly in all the circumstances (see para 84 post) r~ther than of a
legitimate expectation; of R v. Great Yannouth Borpugh Counci~
exp Botton Bros Arcades Ltd., (1988] 56 p & CR 99 at 109; and H
304 SUPREME COURT REPORTS [1994] SUPP. 2 S.C.R.
A see Re Westminister City Council (1986) AC 668 at 692-693, [1986)
2 All ER 278 at 288-289, HL, per Lord Bridge of Harwich,
dissentiog on another poiot.
The existence of a legitimate expectation may have a number
of different consequences: it may give locus standi to seek leave
B to apply for judicial review;
(O'Reilly v. Mackman, [1983) 2 AC 237, 275, [1982) 3 All ER
1124-1127; HL; Council of Civil Service Unions v. Minister for the
Civil Service, [1985) AC 374 at 408, [1984) 3 All ER 935 at 949,
C HL, per Lord Diplock; Re Findlay [1985] AC 318, [1984) 3 All ER
801 at 830, HL.)
It may mean that the authority ought not to act so as to defeat the
expectation without some overridiog reason of public policy to
justify its doing so;
D
R. v. Liveipool C01pn. ex p Liverpool Taxi Fleet Operators'
Association, [1972) 2 QB 299, [1972) 2 All ER 589, CA; R v.
Secretary of State for the Home Departmen• exp Ruddock, [1987)
2 All ER 1025, [1987) 1 WLR 1482, and cf HTV Ltd v. Price
Commission, [1976) !CR 170, CA. But where th9expectation arises·
E
out of an admioistrative authority's existiog po1icy, it can only be
that the policy for the time beiog in existence will be fairly applied,
and cannot be invoked to prevent a change of policy fairly carried
out: Re Fiodlay [1985) AC 318 at 338, [1984) 3 All ER 801 at 830,
HL; R v. Secretary of State for the Environment, ex p B=att
F (Guildford) Ltd, [1988] Times 3 April; and see R v. Secretary of
State for the Home Department, exp Ruddock supra.
or it may mean that, if the authority proposes to defeat a person's
legitimate expectation, it must affirm him an opportunity to make
representations on the matter.
G
A-G of Hong Kong v. Ng Yien Shiu, [1983] 2 AC 629 = [1983) 2
All ER 346, PC; Council of Civil Service Unions v. Minister for the
Civil Service, [1985) AC 374, [1984) 3 All ER 935, HL; R v. Secretary
of State for the Home Department, exp Khan, [1985) 1 All ER 40,
H [1984] 1 WLR 1337, CA. Sometimes the expectation will itself be
WINEMERCHANTS'ASSON. v.STATEOFT.N.[MOHAN,J.] 305
of consultation or the opportunity to be heard; R v. Liverpool A
Corpn., exp Liverpool Taxi, Fleet Operators' Association, [1972] 2
QB 299, [1972] 2 All ER 589, CA; A-G of Hong Kong v. Ng Yien
Shiu supra; Council of Civil Service Unions, v. Minister for the Civil .
Service supra; and see Llyod v. McMahon, [1987] AC 625 at 715 1
All ER 1118 at 1170-1171, HL, per Lord Templeman (legitimate
B
expectation is just a manifestation of the duty to act fairly). But
the scope of the doctrine goes beyond the right to be heard; R v.
Secretary of State for the Home Department, exp Ruddock, (1987]
2 All ER 1025, [1987] 1 WLR 1482. See also R. v. Samet London
Borough Council, ex p Pardes House School Ltd, (1989) Inde-
pendent, 4 May; and R v. Powys County Council, exp Homer, [1988] c
Times, 28 May. There is, however, a legitimate expectation of
reappointment to a public body: R v. North East 171ames Regional
Health Authority, exp de Groot, [1988] Times, 16 April.
The courts also distinguish,.for example in licensing cases, between D
original applications, applications to renew and revocations; a
party who has been granted a licence may have a legitimate
expectation that it will be renewed unless there is some good
reason not to do so, and may therefore be entitled to greater
procedural protection than a mere applicant for a grant.
E
Mcinnes v. Onslow Fane, [1978] 3 All ER 211 at 218, (1978) 1
WLR 1520 at 1529; Schmid! v. Secretary of State for Home Affairs,
(1969) 2 Ch 149; [1968] 3 All ER 795, CA (legitimate expectation
of foreign alien that residence permit will not be revoked before
expiry but not of renewal); Breen v. Amalgamated Engineering
Union, [1971] 2 QB 175, (1971] 1 All ER 1148, CA (legitimate F
expectation that winner of trade union election would be confirmed
in his post by relevant committee); R v. Barnsley Metropolitan
Borough Council, exp Hook, [1976] 3 All ER 452, [1976] 1 WLR
1052, CA. Where there has previously been no general system of
control, an existing trader does not have a legitimate expectation G
of being granted a licence when such a system is introduced; R. v.
Bristol City Council, exp Pearce, [1985] 83 LGR 711.
There cases of this Court may now be seen.
In State of H.P. v. Kai/ash Chand Mahajan, (1992] Supp. 2 SCC 351 H
306 SUPREME COURT REPORTS (1994] SUPP. 2 S.C.R.
A at pages 386-87 in a judgment to which one of us was a party it was stated
thus:
"It might be urged by the tenure of appointment there is a right
to :continue; the legitimate expectation has come to be interfered
with. In a matter of this kind, as to whether legitimate expectation
B could be pleaded is a moot point. However, we will now refer to
Wade's Administrative Law (6th edn.) wherein it is stated at pages
520-21, as under:
"Legitimate expectation : positive effect. - The classic situation
c in 1Yhich the principles of natural justice apply is where some legal
right, liberty or interest is affected, for instance where a building
is demolished or an office-holder is dismissed or a trader's licence
is revoked. But good administration demands their obervance in
other situations also , where the citizen may legitimately expect to
be treated fairly. As Lord Bridge has explained :
D
·Re Westminister CC, (1986) AC 668 at 692. Lord Diplock made
a formal statement i.n the Council of Civil Service Unions case
(below) at 408, saying that the decision must affect some other
person either -
E (a) by altering rights or obligations of that person which are
enforceable by or against hitn in private law; or (b) by depriving
him of some benefit or advantage which either (i) he had in the
past been permitted by the decision-maker to enjoy and which he
can legitimately expect to be permitted to continue to do until
F there has been communicated to him more rational grounds for
withdrawing it on which he has been given an opportunity to
comment; or (ii) he has received assurance from the decision-
maker will not be withdrawn without giving him first an opportunity
of advancing reasons for contending that they should not be
withdrawn.
G
This analysis is 'classical but certainly not exhaustive' : R v.
Secretary of State for the Environment ex. p. Nottinghamshire CC,
[1986) AC 240 at 249 (Lord Scarman). One case which does not
seem to be covered is that of a first-time applicant for a licence
H (below, p.559).
WINE MERCHANTS' ASSON. v. STATE OFT.N. [MOHAN,J.] 307
The Courts have developed a relatively novel doctrine in publi~ A
law that a duty of consultation may arise from a legitimate expec-
tation of consultation aroused either by a promise or by an estab-
lished practice of consultation".
In a recent case, in dealing with legitimate expectation in R v. B
Ministry of Agriculture, Fisheries and Food, et parte Jaderow Ltd.,
(19~1] 1 All ER 41, it has been observed at page 68:
"Question II: Legitimate expectation: It should be pointed out
in this regard that, under the powers reserved to the member states
by Article 5(2) of Regulation 170 of 1983, fishing activities could C
be made subject to the grant of licences which , by their nature,
are subject to temporal limits and to various conditions. Further-
more, the introduction of the quota system was only one event
amongst others in the evolution of the fishing industry, which is
characterised by instability and continuous changes in the situation D
due to a series of events such as the extensions, in 1976, of fishing
areas to 200 miles from certain coasts of the Community, the
necessity to adopt measures for the conservation of fishery resour-
ces, which was dealt with at the international level by the intro-
duction of total allowable catches, the arguments about the
distribution amongst the member states of the total allowable E
catches available to the Community, which were finally distributed
on the basis of a reference period which ran from 1973 to 1978
but which is reconsidered every year.
In those circumstances, operators in the fishing industry were F
not justified in taking the view that the Community rules precluded
the making of any changes to the conditions laid down by national
legislation or practice for the grant of licences to fish against
national quotas as the adoption of new conditions compatible with
Community law.
G
Consequently, the answer to this question must. be that com-
munity law as it now does not preclude legislation or a practice of
a member state whereby a new condition not previously stipulated
is laid down for the grant of licences to fish against national
quotas.JI H
308 SUPREME COURT REPORTS (1994] SUPP. 2 S.C.R. .
A Thus, it will be clear even legitimate expectation cannot
preclude legislation."
In Food Corporation of India v. M/s. Kamdhenu Cattle Feed In-
dustries, JT (1992) 6, 259 at 264 this Court observed thus:
B
"The mere reasonable or legitimate expectation of a citizen, in
such a situation, may not by itself be a distinct enforceable right,
but failure to consider and give due weight to it may render the
decision arbitrary, and this is how the requirement of due con-
sideration of a legitimate expectation forms part of the principle
c of non-arbitrariness, a necessary concomitant of the rule of law.·
Every legitimate expectation is a relevant factor requiring due
consideration in a fair decision making process. Whether the
expectation of the claimant is reasonable or legitimate in the
context is a question of fact in each case. Whenever the question
D arises, it is to be determined not according to the claimant's
perception but in larger public interest wherein other more impor-
tant considerations may outweigh! what would otherwise have been
the legitimate expectation of the claimant. A bona fide decision pf
the public authority reach.ed in this matter would satisfy the re-
quirement of non-arbitrariness and withstand judicial scrutiny. The
E doctrine of legitimate expectation gets assimilated in the rule of
law and operates in our legal system in this manner and to this
extent."
In Union of India v. Hindustan Development Corporation, IT (1993)
F- 3 S.C. 15 at pages 50-51 this Court observed thus :
• "It has to be noticed that the concept oflegitimate expectation
in administrative law has now, undoubtedly, gained sufficient im-
portance. It is stated that "Legitimate expectation" is the latest
recruit to a long list of concepts fashioned by the courts for the
G review of aaministrative action and this creation takes its place.
beside such principles as the rules of natural justice, un-
r.easonableness, the fiduciary duty of local authorities and "in
future", perhaps, the principle of proportionality." A passage in
Administrative Law, Sixty Edition by H.W.R. Wade page 424 reads
H thus:'
WINE MERCHANTS' ASSON. v. STATE OFT.N. [MOHAN,J.] 309
"These are revealing decisions. They show that the courts now A
expect government departments to honour their published state-
ments or else to treat the citizen with the fullest personal con-
sideration. Unfairness in the form of unreasonableness here comes
close to unfairness in the form of violation of natural justice, and
the doctrine of legitimate expectation can operate in both contexts. B
It is obvious, furthermore, that this principle of substantive, as
opposed to procedural, fairness may undermine some of the es-
tablished rules about estoppel and misleading advice, which tend
to operate unfairly. Lord Scarman has stated emphatically that
unfairness in the purported exercise of a power can amount to an
abuse or excess of power, and this seems likely to develop into an C
important general doctrine."
Another passage at page 522 in ihe above book reads thus :
"It was in fact for the purpose of restricting the right to be
heard that 'legitimate expectation' was introduced into the law. It D
made its first appearance in a case where alien students of
'scientololgy' were refused extension of their entry permits as an
act of policy by the Home Secretary, who had announced that no
discretionary benefits would be granted to this sect. The Court cif
Appeal held that they had no legitimate expectation of extension E
beyond the permitted time, and so no right to a hearing, though
revocation of their permits within that time would have been
contrary to ·legitimate expectation. Official statements of policy,
therefore, may cancel legitimate expectation, just as they may
create it, as seen above. In a different context where car-hire
drivers had habitually offended against airport byelaws, with many F
convictions and unpaid fines, it was held that they had no legitimate
expectation of being heard before being banned by the airport
authority.
There is some ambiguity in the dicta about legitimate expectation, G
which may mean either expectation of a fair hearing or expectation
of the licence or other benefit which is being.sought. But the result
is the same in either case; absence of legitimate expectation will
absolve the public authority from affording a hearing.
(emphasis supplied)" H
310 SUPREME COURT REPORTS (1994] SUPP. 2 S.C.R.
A Again, at pages 56-57 it is observed thus :
"........... A case of legitimate expectation would arise when a
body by representation or by past practice aroused expectation
which it would be within its powers to fulfill. The protection is
limited to that extent and a judicial review can be within those
B
limits. But as discussed above a person who bases his claim on the
doctrine of legitimate expectations, in the first instance, must
satisfy that there is a foundation and thus has locus standi to make
such a claim. In considering the same several factors which give
rise to such legitimate expectation must be pfesent. The decision
c 1 1 taken by the authority must be found to be arbitrary, unreasonable
and not taken in public interest. If it is a question of policy, even
by way of change of old policy, the courts cannot inteifere with a
decision. In a given case whether there are such facts and cir-
cumstances giving rise to a legitimate expectation, it would
primarily be a question of fact. If these tests are satisfied and if
D
the court is satisfied that a case of legitimate expectation is made
' ' but then the next question would be whether failure to give an
opportunity of hearing before the decision affecting such legitimate
expectation is taken, has resulted in failure of justice and whether
on that ground the decision should be quashed, If that be so then
E what should be the relief is again a matter which depends on
several factors. ' (Emphasis supplied)
Again at pages 57-58 it is observed thus :
F "Legitimate expectations may come in various forms and owe
their existence to different kind of circumstances and it is not
possible to give an exhaustive list in the context of vast and fast
expansion of the governmental activities. They shift and change so
fast that the start of our list would be absolute before we reached
the middle. By and large they arise in cases of promotions which
G. are in normal course expected, though no guaranteed by way of a
statutory right, in cases of contracts, distribution of largess by the
Government and in somewhat similar situations. For instance in
cases of discretionary grant of licences, permits of the like, carries
with it a reasonable expectation, though not a legal right to renewal
H or non- revocation, but to summarily disappoint that expectation
WINE MERCHANTS' ASSON. 1•. STATEOFT.N. [MOHAN,J.] 311
may be seen as unfair without the expectant person being heard. A
But there again the court has to see whether it was done as a policy
or in rile public imeresr either by way of G.O., rnle or by way of a
legislario11. If that be so, a decision de11yi11g a legitimate expecrario11
based 011 such grounds does 1101 qualify for i11teifere11ce unless i11 a
give11 case, rile decisio11 or action rake11 amounts to an abuse of B
power. Therefore the limitation is extremely confined and if the
according of natural justice does not condition the exercise of the
power, the concept of legitimate expectation can have no role to
play and the court must not usurp the discretion of the public
authority which is empowered to take the decisions under law and
the court is expected to apply an objective standard which leaves C
to the deciding authority the full range of choice watch the legis-
lature is presumed to have intended. Even in a case where the
decision is left entirely to the discretion of the deciding authority
without any such legal" bounds and if the decision is taken fairly
and objectively, the court will not interfere on the ground of D
procedural fairness to a person whose interest based on legitimate
expectation might be affected. For instance if an authority who has
full discretion to grant a licence and if he prefers an existing licence
holder to a new applicant, the decision cannot be interfered with
on the ground of legitimate expectation entertained by the new E
applicant applying the principles of natural justice. It can therefore
be seen that legitimate expectation can at the most be one of the
grounds which may give rise to judicial review but the granting of
relief is very much limited. It would thus appear that there are
stronger reasons as to why the legitimate expectation should not
be substantively protected than the reasons as to why it should be
F
protected. In other words such a legal obligation exists whenever
the case supporting the same in terms of legal principles of dif-
ferent sorts, is stronger than the case against it. As observed in
Attorney General for New South Wales' case "To strike down the
exercise of administrative power solely on the ground of avoiding G
the disappointment of the legitimate expectations of an individual
would be to set the courts adrift on a featureless sea of pragmatism.
Moreover, the notion of a legitimate expectation (falling short of
a legal right) is too nebulous to form a basis for invalidating the
exercise of a power when its exercise otherwise accords with law." H
312 SUPREME COURT REPORTS [1994] SUPP. 2 S.C.R.
A If a denial of legitimate expectation in a given case amounts to
denial of right guaranteed or is arbitrary, discriminatory, unfair or
biased, gruss abuse of power of 1folation of principles of natural
justice, the same can be questioned on the well-known grounds
attracting Article 14 but a claim based on mere legitimate expec-
tation without anything more cannot ipso facto give a right to
B invoke these principles. " (Emphasis supplied)
For the above it is clear that legitimate expectation may arise -
(a) if there is an express promise given by a public authority; or
c {b) because of the existence of a regular practice which the claimant
can re·asonably expect to continue ;
(c) Such an expectation must be reasonable.
However, if there is. a change in policy or in public interest the
D position is altered by a rule or legislation, no question of legitimate expec-
tation would arise.
The licence under the Bar Rules of 1992 is for a period of one year.
That could be renewed, as seen above only on a privilege amount, as may
be f1Xed by the State Government, in this behalf. This is unlike the case of
E
the retail vending licence wherein the renewal is contemplated on payment
of 15 per cent more than the privilege amount at which the sale of the
privilege Was confirmed in the previous yeat. This is as regards the second
year. Likewise, 10 per cent more than the privilege amount for the third
year. Therefore, the position is entirely different giving no room for any
F expectation. At best, it could be a hope. On this aspect we can usefully
refer to Director of Public Works v. HO PO Sang, [1961] 2 All E.R. 721. at
page 730 it was observed thus :
. "It was submitted on behalf of the lessee that , after the director
had given notice (see s.3A(2) of his intention to give a re-building
G ·certificate, some kind of a right (even though one that might be
defeated) to such a certificate was then acquired by the lessee.
Their Lordships cannot accept this view. After the director gave
notice of his intention to issue a certificate, there could have been
no giving of it until certain conditions were satisfied. The lessee
H was under obligation to give notices as required by s.3B(l). Had
WINE MERCHANTS' ASSON. '" STATEOFT.N. [MOHAN,J.] 313
there been no appeals by tenants and sub-tenants and had the lime A
for appeals expired, the director would then have been in a position
to give a certificate. Had those been the circumstances than inas-
much as the director had indicated what his intention was, doubt-
less he would in fact have given his certificate. But the ordinance
did not impose an obligation on the director to give a certificate
B
in accordance with his declared intention unless and until certain
conditions were satisfied, Though, in the events that happened, this
point does not call for decision, it would not seem that, in any
circumstances, any right to a certificate could arise at least until,
after notices given, the time for appeals by tenants and sub-tenants
went by without there being any appeal. In a case, however, where c
(as in the present case) the giving of notices under s.38(1) resulted
in appeals by way of petition to the governor, followed by a
cross-petition to the governor presented by the applicant, then any
decision as to the giving of a re-building certificate no longer rested
with the director. In the present case, the position on Apr. 9, 1957, D
was that the lessee did not and could not know whether he would
or would not be given a re-building certificate. Had there been no
repeal, the petitions and cross-petition would in due course have
been taken into consideration by the Governor in Council. There-
after there would have been an exercise of discretion. The governor
would not have directed either that a certificate be given or be not E
given, and the decision to the Governor in Council would have
been final. In these circumstances, their Lordships conclude that
it could not properly be said that, on Apr. 9, the lessee had an
accrued right to be given a re-building certificate. It follows that
he had no accrued rights to vacant possession of the premises. It p
was said that there were accrued rights to a certificate, and,
consequently, to possession, subject only to the risk that these
rights were not defeated. Jn their Lordships' view, such an ap-
proach is not warranted by the facts. On Apr. 9 the lessee had no
right. He had no more than a hope that the Governor in Council
would give a favourable decision. So the first submission fails." G
(Emphasis supplied}
It has already been seen that under Rule 4(a) of the Bar Rules the.
eligibility of such a licence is possession of a retail vending licence. The'
period of licence was for one year ending by 31st May, 1992. The speech H
314 SUPREME COURT REPORTS [1994] SUPP. 2 S.C.R.
A of the Governor which we have extracted above was made on 4th February,
1993. The impugned G.0. had come to be passed on 3rd March, 1993. The
important point to be noted here is long before the Bar licensee could
apply for renewal (Rule 6 talks of 30 days before the expiry of the licence)
the policy decision has been taken not to renew.
B Having regard to what is stated above, it is clear that there was
absolutely no promise of renewal at all.
It was by a Rule (subordinate legislation) in exercise of the powers
conferred by Sections 17-C, 17-D, 21 and 54 of the Tamil Nadu Prohibition
C Act, 1937 licences under Bar Rules came to be granted. Those Rules have
been repealed by exercise of the same powers under Sections 17-C, 17-D,
21 and 54 of the Prohibition Act. Therefore, this is a case of legislation.
The doctrine of legitimate expect•tion arises only in the field of administra-
tive decisions. If the plea of legitimate expectation relates to proceduraf
fairness there is no possibility whatever of invoking the doctrine as against
D the legislation. However, Mr. K. Para.saran, learned senior counsel relies
on Supreme Cowt Advocates-011-Record Association v. Union of l11dia,
[1993) 4 SCC 441. At page 703 what is stated is this :
"Due consideration of every legitimate expectation in the
decision making process is a requirement of the rule of non-ar-
E
bitrariness and , therefore, this also is a norm to be observed by
the Chief Justice of India in recommending appointments to the
Supreme Court. Obviously, this factor applies only to those con-
sidered suitable and at least equally meritorious by the Chief
Justice of India, for appointment to the Supreme Court."
F
This principle of non-arbitrariness cannot apply to a change of policy
by legislation. Concerning the applicability of non- arbitrariness and change
of policy learned counsel has cited R. Vijaykumar v. The Commissioner of
Excise, JT (1993) 6 S.C. 325. That case dealt with discrimination between
G licensees. Hence, the same is not applicable. As a matter of fact in the
affidavit filed on behalf of the State of Tamil Nadu dated 8th July, 1993 it
is inter alia stated thus :
"On complaints received from the public, some time in
February, 1993 itself the Government had decided not to renew
H the licences for bar attached to the retail vending shops. This was
WINE MERCHANTS' ASSON, ,,_STATE OFT.N. IMOHAN,J.] 315
also announced in the Go\·ernor's speech and made public on A
4.2.1993.
That on 3.3.1993 the Government by G.O.Ms. No.44 announced
that as a matter of policy the Government would not renew licences
to the bar attached with the vending shop with effect from
1.6.1993." B
For all these reasons, we have no hesitation in coming to the con-
clusion that the doctrine of legitimate expectation cannot arise at all in this
case.
The effect of accepting the orgument of the appellants would be, as
c
rightly urged by Mr. G.L. Sanghi, learned counsel appearing for the State
of Tamil Nadu the power of the State will be fettered not to repeal a
particular law, however, much public interest may require the repeal.
Question No.J : Whether resci11di11g of the Bar Rules is arbitra1y ?: D
It is a settled principle that legislative action, plenary or subordinate,
is not subject to natural justice. In /11dia11 Express News Papers (Bombay)
Pvt. Ltd. v. U11io11 of India, [1985) 2 SCR 287 at pages 347-48 it is stated
thus:
E
"This subordinate legislation cannot be questioned on the
ground of violation of principles of natural justice on which ad-
ministrative action may be questioned has been held by this Court
in 17te Tulsipur Sugar Co. Ltd. v. 77ie Notified Area Committee,
Tulsipur, [1980] 2 SCR 1111, Rameshcl1a11dra Kachardas Porwal & F
Ors. v. State of Maharashtra & Ors etc., [1981] 2 SCR 866 and in
Bates v. Lord Hai/sham of St Marylebone & Ors., (1972] 1 WLR
1373. A distinction must be made between delegation of a legisla-
tive function in the case of which the question of reasonableness
cannot be enquired into and the investment by statute to exercise
particular discretionary powers. In the latter case the question may G
be considered on all grounds on which administrative action may .
be questioned, such as, non- application of mind, taking irrelevant
matters into consideration, failure to take relevant matters into
consideration, etc. etc. On the facts and circumstances of a case ,
a subordinate legislation may be struck down as arbitrary or H
316 SUPREME COURT REPORTS (1994) SUPP. 2 S.C.R.
A contrary to statute if it fails to take into account very 'vital facts
which either expressly or by necessary implication are required to
be taken into consideration by the statute or, say, the Constitution.
This can only be done on the ground that it does not conform. to
the statutory or constitutional requirements or that it offends
Article 14 or Article 19(1}(a) of the Constitution. It cannot, no
B doubt, be done merely no the ground that it is not reasonable or
that it has not taken into account relevant circumstances which the
Court considers relevant."
The same principle is reiterated in U11io11 of India v. Cynamide I11dia
C Ltd., AIR ( 1987} SC 1802 which is referred to with approval in H.S.S.K
Niyami v. U11ion of India, AIR (1990) SC 2128.
When the State has received complaints that the consumption of
liquor in bars resulted in law and order problems, womanfolk being
harassed, certainly, in public interest it could take a decision t.o repeal the
D grant of Bar licences. There is nothing unreasonable. It is not necessary
as Mr. Garg contends that a committee ought to have been appointed and
a report obtained before such a repeal. It is a matter of policy which the
Government alone is competent to formulate. The State Government
knows how best to augment its revenue.
E
A~ we have seen above, if there is no promise or right of renewal
and if the policy decision has been taken under the impugned G.D. long
before the licensee could apply for renewal what is the unfairness that
could be complained of/ In our considered view, none. From this point of
view, we find the ruling in Vasantkumar Radhakisl!an Vira v. Board of
F Trnstees of the Port of Bombay, (1991) 1 SCC 761 is not applicable to the
present case.
Questi01i No. 4: Be11efit under Section 8 of the General Clauses Act?
G We. have already noted that Section 54 of the Prohibition Act is a
rule-making section. The Rules and the Notification require to be publish-
ed in the official gazette. Upon such publication, they shall have effect as
if enacted in the parent act. The High Court on the question of applicability
of Section 8 of the Tamil Nadu General Clauses Act has stated thus :
H ·' Section 4 of the Tamil Nadu General Clauses Act makes
WINE MERCHANTS' ASSON '" STATE OF TN. [MOHAN. J.) 317
Chapter II applicable to all Tamil Nadu Acts after the commen- A
cement of the said Act unless a contrary intention appears in such
Acts, Section 8 of the Tamil Nadu General Clauses Act is subject
to Section 4 of that Act and the new enactment can expressly or
by necessary implication exclude the operation of Section 8. Read-
ing Sections 4 and 8 together , there can be no doubt that an
B
enactment which repeals an earlier enactment can exclude any of
the provisions of Chapter II of th'e Tamil Nadu General Clauses
Act. The impugned G.O. has rescined the Tamil Nadu Liquor
(Retail Vending in Bar) Rules 1992 with effect on and from 1st
June, 1993. Hence' the repealed rules ceased to be in existence
after 31.5.1993. The privilege and the licence granted to the c
petitioner were admittedly for one year ending with 31.5.1993.
Under the repealed rules they were obliged to apply for renewal
and the renewal was not automatic. The application for renewal
had to be considered under the rules by the concerned authority
and appropriate orders should be passed. Once the rules are D
repealed. with the expiry of 31. 5.92, there could be no question
of considering any application for renewal for a period subsequent
to that date. What all section 8 of the Tamil Nadu General Clauses
Act preserves or protects are the rights acquired under the
repealed Act. Jn other words, the petitioners licence_ for the period
upto 31-5-1993 remained undisturbed or unaffected by the im- E
pugned G.O, It is not as if the same right or privilege can operate
beyond 31. 5. 1993 as though by an order of renewal, If the right
or privileges cannot on its own force is subsist when the impugned
G.O, comes into force the provisions of Section 8 of the Tamil
Nadu General Clauses Act cannot give a fresh lease of life to such F
right or privilege or alter the. period of its validity. Hence, the
contention based on the provisions of the General Clauses Act has
1
to fail. '
We are in entire agreement with this line of reasoning.
G
-/
In this connection, the reliance placed by the learned Additional
Solicitor General on Indira So/tan/a/ v. Custodian of Evacuee Property,
Delhi, [1955] 2 SCR 1117 is fully justified, At page 1118 i.t is stated thus :
"(iv) that the scheme underlying s.58(3) is that every matter to H
318 SUPREME COURT REPORTS (1994) SUPP. 2 S.C.R.
A which the new Act applies has to be treated as arising, and to and
to be dealt with, under the new law except in so far as certain
consequences have already ensued or acts have been completed
prior to the new act, to which it is the old law that will apply."
If, therefore, as pointed out above, no right or privilege could operate
B beyond 31.5.1993, the benefit of Section 8 of the Tamil Nadu General
Clauses Act .cannot be had before we leave the case one post - scriptum :
"Intoxicating drinks have produced evils more deadly, because
more continuous, than all those caused to mankind by the great
historic scourges of war, famine, and pestilence combined."
c
William Gladstone.
In view of the foregoing· discussion the appeals and writ petition
deserve to be dismissed. Accordingly they are dismissed. However, in the
circumstances of the case, there shall be no order as to costs.
v.s.s. Appeals and petition dismissed.
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