Holding

Rule 9(2) is held to be vague and unworkable, rendering it ultra vires unless read narrowly to prohibit only adulteration, and the excess alcohol content in toddy does not attract Section 57, so the prosecution under that provision is quashed.

Summary

The State of Kerala prosecuted licensees Unni and others for selling toddy whose ethyl alcohol content exceeded the limits prescribed in Rule 9(2) of the Kerala Abkari Shops (Disposal in Auction) Rules, invoking Sections 56 and 57 of the Abkari Act. The High Court had upheld the rule, but the Supreme Court examined whether the rule was unworkable, vague, and ultra vires, and whether the excess alcohol constituted adulteration. The Court held that Rule 9(2) is vague and unreasonable unless read narrowly to target only adulteration, and that the natural fermentation of toddy cannot be treated as deliberate addition of a foreign substance, so Section 57 does not apply. Consequently, the prosecution under Section 57 was quashed and the State’s appeal dismissed while the licensees’ appeals were allowed. The decision emphasizes strict construction of penal statutes, the need for reasonable and definite conditions in delegated legislation, and the principle that a statute must be workable.

Issues considered

The validity and constitutionality of Rule 9(2) of the Kerala Abkari Shops (Disposal in Auction) Rules, 2002.
Whether excess ethyl alcohol content in toddy amounts to adulteration under Section 57 of the Abkari Act.
Whether the State can invoke Section 57 for prosecution when the excess alcohol results from natural fermentation.
Whether Rule 9(2) is vague, unreasonable, and ultra vires under Article 14 and the doctrine of unreasonableness.

Legislation cited

Abkari Acts. 3(12), s. 3(8), s. 5, s. 56, s. 57

Subjects

Abkari Acttoddyadulterationpenal statute interpretationRule 9(2)Section 56Section 57vaguenessunreasonablenessconstitutional validitydelegated legislationstrict constructionpurposive constructionlicense renewal

Judgment

STATE OF KERALA AND ORS. A
v.
UNNI AND ANR.

DECEMBER I, 2006

[S.B. SINHA AND MARKANDEY KA TJU, JJ.]
B

Abkari Act; Ss. 3(8), 3(12), 5, 56 and 57/Kerala Abkari Shops (Disposal
in Auction) Rules, 2002 - r.9(2):

Toddy-Permissive quantity of-Alcholic contents-Adulteration-
c
Violation of Rule 9(2) of the Rules-Applicability of Penal provisions under
Sections 56 and 57 of the Act-Held: Prohibition under the Rules aimed at
controlling adulteration by addition of any foreign substance in toddy to
increase its intoxicating power-Though contents of ethyl alochol by way of
fermentation could go up to 12% in terms of Excise Mannual but in terms of D
the Rules if it exceeds 8. 1% would attract penal provisions under ss. 56 and
57 of the Act-State imposing a condition, violation of which attracts penal
provision, hence it must be definite and not vague-Since condition so imposed
is impossible to be pe1formed, unreasonableness ofthe statute shall be presumed
unless it is based on a reasonable criteria-Licensee must have been provided E
with means to prevent commission of irregularities without which it is termed
vague and could be struck down-Since toddy ferments naturally after sunrise,
at what point of time its ethyl alcohol content would exceed 8. 1% is not
known-Interpretation of statute in such situation rests on principles of
. reasonableness, equity and good conscience-A penal provision must be definite F
unless statutory requirements provide otherwise, existence of mens rea must
be read into a penal statitfe-lt must be a deliberate act and not an unintentional
one-Statute should say so explicitly or by necessary implication-Act or
Rules in question do not say so-Hence, ex facie unreasonable and
unworkable-Inte1pretation of Statutes-Purposive construction--Constitution
of India, 1950-Seventh Schedule-List-11-Entry 8. G
Kera/a Abkari Shops (Disposal in Auction) Rules 2002-Rule 9(2)-
Constitutionality of-Held: It could be invoked even for the purpose ofinitiating
a prosecution against a licensee even if he does not add any substance to it
rendering it ultra vires.
. H
931
f

932 SUPREME COURT REPORTS [2006] SUPP. 9 S.C.R.

A Penal Statute-Applicability of-Held: A penal statute must receive
strict construction-Only in exceptional cases the principles of purposive
construction shall apply-High Court rightly held that Section 57 of the Act
not attracted as it must receive strict construction as it leads to higher penalty-
In the facts and circumstances of the case, provision of Section 56 would be
B attracted-Interpretation ofStatute-Principles ofpurposive construction and
strict construction.

Interpretation of Statutes:

Workability of statutes-Construction of a penal statute-Purposive
C construction-Requirement of-Discussed

Maxims:

Maxim 'ut rest magis valeat quam pereat'-Applicability of

D In the State of Kerala manufacture or sale of liquor, including
country made liquor is regulated in terms of the provisions of Abkari Act.
The regulatory statute is made in terms of Entry 8 of List II of the 7th
Schedule of the Constitution of India. A licensee is required to manufacture
or sale country made liquor in terms of the provisions of the Act, Rules
framed thereunder as also the terms and conditions of the licence.
E Authorities concerned seized samples of toddy from the business premises
of the licensees and found that ethyl contained therein was 9.50% v/v. They
were prosecuted under Section 57(a) of the Act. Aggrieved, the licensees
filed Writ petitions questioning the validity or otherwise of Rule 9(2) of
the Rules and/or applicability of Section 57(a) of the Act. Single Judge of
F the High Court held the said rules ultra vires. The Single Judge, however,
did not consider it necessary to go into the question of interpretation of
the. two penal provisions viz. Section 56(b) and Section 57(a) of the Act.
The criminal proceedings as against the licensee were quashed. In an intra-
court appeal, the Division Bench, however, upheld the validity of Rule 9(2)
G of the Rules, holding that it had not imposed any condition which make it
unworkable. Upon construction of Section 56(a) and Section 57(b), it was
opined that having regard to the fact that ethyl alcohol is an essential
component or ingredient of toddy, only because percentage of ethyl alcohol
found to be more, it would not amount to addition of a foreign ingredient
as envisaged under Section 57(a) of the Act. In the result, the challenge
H against the vires of Rule 9(2) of the Rules is repelled, however, proceedings
STATE OF KERALA v. UNNI 933
under Section 56(b) of the Act are quashed. Hence the present appeals A
and cross appeals.

Appellant-State contended that the provisions of Section 57(a) of the
Act, in view of its purport and object must receive a purposive
construction; that once the percentage of ethyl alcohol is found to be in
excess of the permissible limit, the same would amount to addition of B
foreign material so as to attract the provision of Section 57(a) of the Act;
and that the law must receive strict interpretation where adulteration of
an edible commodity is alleged.

Respondents-licensees submitted that Rule 9(2) of the Rules should C
have been declared ultra vires as it is unworkable, as there does not exist
any mechanical equipment to measure the contents of ethyl alcohol in
toddy. Even the Excise Department did not have any such facility.

Dismissing the appeals filed by the State and allowing the appeals
filed by the Licensees, the Court D
HELD: 1.1. Rule 9(2) of the Kera la Specified Spirit Rules should be
given a plain meaning. Validity of Rule 9(2) can be saved if the said
provision is read in its entirety and rule of harmonious construction is
resorted to. If, however, Rule 9(2) is sought to be invoked even for the
purpose of initiating a prosecution as against a licensee even when he does E
not add any foreign substance to it, the same would render it ultra vires.
[943-D-EJ
1.2. The constitutionality of a statute is presumed in view of the
principles laid down in 'ut rest magis valeat quam pareat'. The principles
on which constitutionality of a statute is judged and that of a subordinate p
legislation are different. [944-C-D]

1.3. The definition of 'toddy' does not limit the extent of fermentation.
Fermented toddy would, therefore, come within the purview of definition
of toddy. Manufacture and sale of toddy, which is fermented, is not
prohibited. Excise Manual clearly points out that the contents of ethyl G
alcohol by reason of fermentation in toddy can go upto 12%, whereafter
only it ceases to be a toddy. While laying down the norms in Excise
Manual, the State had used the words 'average yield'. The percentage
specified therein, thus, is only average. [944-D-E]

1.4. If by reason of the rule making power, the State intended to H
934 SUPREME COURT REPORTS [2006] SUPP. 9 .S.C.R.

A impose a condition, the same was required to be reasonable one. It was
required to conform to the provisions of the statute as its violation would
attract penal liability. It was expected to be definite and not vague.
Indisputably, the State having regard to the provisions of Article 47 of
the Constitution of India, must strive hard to maintain public health.
B While, however, imposing conditions in regard to the prescription of
norms, it was expected of the State to undertake a deeper study in the
matter. It should have undertaken actual experiments. It should have
specified mode and manner in which the percentage of ethyl alcohol can
be found out by the licensee. A subordinate legislation can be questioned
on various gr'lunds. It is also well-known that a subordinate legislation
C would not enjoy the same degree of immunity as a legislative act would.
(944-F-G-H)
Vasu Dev Singh & Ors. v. Union of India & Ors., (2006) 11 SCALE
108, relied on.
1.5. Unreasonableness is one of the grounds of judicial review of
D delegated legislation. Reasonableness of a statute or otherwise must be
·judged having regard to the various factors which, of course, would include
the effect thereof on a person carrying on a business. (945-H; 946-A)

1.6. Though nobody has any fundamental right to carry on business
in toddy or liquor, but all the licensees are entitled to be treated equally.
E If the matter of validity or otherwise of the subordinate legislation is to +
be considered, Article 14 of the Constitution of India shall be attracted.
State of Punjab and Anr. v. Devcms Modern Breweries Ltd and Anr.,
(2004) 11 SCC 26; Ashok Lanka and Another v. Rishi Dikshit and Ors., [2005)
5 SCC 598 and Ashok Lanka-I/ v. Rishi Dikshit, (2006) 9 SCC 90, relied on.
F
1. 7. When a statute provides for a condition which is impossible to be
performed, unreasonableness of a statute shall be presumed. It would
be for the State in such a situation to justify the reasonableness thereof.
(946-C)
G 1.8. When a subordinate legislation imposes conditions upon a
licensee regulating the manner in which the trade is to be carried out, the
same must be based on reasonable criteria. A person must have means to
prevent commission of a crime by himself or by his employees. He must
know where he stands. He must know to what extent or under what
H circumstances he is entitled to sell liquor. The statute in that sense must l
'
STATE OF KERALA v. UNNI 935
be definite and not vague. Where a statute is vague, the same is liable to A
be struck down. (946-D-EI

Hamdard Dawakhana (Wakj) Lal Kuan, Delhi and Anr. v. Union ofIndia
and Others - AIR (1960) SC 554, relied on.

1.9. WorkabHity of a statute vis-a-vis the question as to whether it is B
vague or otherwise must also be considered having regard to the question
as to whether it is at all practical. (946-GI

1.10. Where two interpretations are possible, having regard to the
workability or unworkability of a statute, the one which leads to the
workability of the statute must be preferred than the other, keeping in C
view the principle 'ut rest magis valeat quam pereat'. In the instant case,
no two interpretations are possible for upholding the validity of statute.
Applying the principle of law as enunciated by this Court in number of
decisions, no interpretation would make the statute workable or definite
and thereafter, valid in law. (946-G-H; 948-A-BI D

-
State of Tamil Nadu v. MK. Kandaswami and Ors., (1975) 4 SCC 745;
Commissioner of Sales Tax, Delhi and Ors. v. Shri Krishna Engg. Company
and Ors., [2005] 2 SCC 692 and Rakesh Wadhwani and Ors. v. Jagdamba
Industrial Corporation and Ors., [20021 5 SCC 440, referred to.
E
2.1. Toddy ferments automatically after sun rise. If it is permitted
to be sold within a timeframe after toddy is tapped, reasonableness can
be inferred; but at what point of time precisely ethyl alcohol content would
exceed 8.1 % in a toddy is not known. (948-C)

2.2. It is reasonable to expect that the State would frame rules in F
consonance wjth equity and good conscience. A rule may not be worked
out if it imposes a condition which, unless some other guidelines are issued,
would become impossible to be performed. The consequences of a single
violation may be disastrous. If the contention of the State is correct, it
would not only result in penal consequences, but would also lead to non-
renewal of the licence. The licensee, thus, for all intent and purport loses G
his right to carry on business. Carrying on trade of liquor may not be a
.fundamental right, but it is a contractual right given to him in terms of
the provisions of a statute. The terms and conditions are governed by
statute. The violation thereof would lead to penal consequences.
Interpretation of statute in such a situation rests on the principle of H
936 SUPREME COURT REPORTS (2006] SUPP. 9 S.C.R.

A reasonableness, equity as well as good conscience. (948-C-D-El
Bharat Hydro Power Corporation Ltd. & Ors. v. State of Assam and
Anr., (2004] 2 SCC 553 and Bombay Dyeing & Manufacturing Co. Ltd. (3)
v. Bombay Environmental Action Group & Ors., (2006) 3 SCC 434, relied
on.
B
2.3. In terms of provisions of the Act, a person may be held to be
guilty even if the contents of ethyl alcohol exceed 8.1 % marginally. He
must, therefore, be in a position to know as to what extent he can go and
to what extent he cannot. The matter cannot, thus, be left to an act of
C nature. A penal provision must be definite. Unless the statutory intention
otherwise provides, existence of mens rea must be read into a penal statute.
It must be a deliberate act and not an unintentional one, unless the statute
says so explicitly or by necessary implication. However, the Act or the
Rules in question do not say either. It is in that sense vague or
unreasonable. Once, thus, it is found to be ex facie unreasonable and
D unworkable, the court would not hesitate to strike down the said rule.
Hence, Rule 9(2) is held unworkable being vague in nature, unless read I-

in the manner as suggested above. [948-G-H; 949-A-Bl

3.1. Sectio;1s 56 and 57 of the Act operate in different fields. They
lead to different consequences. They provide for different punishments.
E Whereas Section 56 contemplates penal action in the event terms and
conditions of a licence are found to have been violated; Section 57 of the
Act speaks of adulteration. [949-C-D]

3.2. A person may violate rule, but thereby may not adulterate liquor.
Whereas violation of the rule may be intentional or unintentional
F attracting penal provisions of Section 56 of the ACt. Violation of the
provisions of Section 57 rests on existence of mens rea or actus reus on the
part of the offender. In a case where extract of juice is subject to automatic
fermentation, one does not have to mix anything for incre:Ase of contents
of ethyl alcohol. It is not the case of the State that the licensee has
G deliberately mixed additional ethyl alcohol in the liquor so as to increase
the potency thereof. (949-D-El

3.3. Section 57 provides for graver offence. If one act attracts two
offences, the one providing for higher punishment cannot be presumed to
apply unless ingredients thereof are satisfied. A penal statute must receive
H strict construction. Only in exceptional cases the principles of purposive
ST ATE OF KERALA v. UNNI 937
construction shall apply to a penal statute. [949-F) A
Indian Handicrafts Emporium and Ors. v. Union of India and Ors.,
(2003) 7 SCC 589 and Bairam Kumawat v. Union of India and Ors., [20031
7 sec 628, relied on.

3.4. Section 57 must also receive strict construction, having regard B
to the fact that thereby an offence proved would lead to a higher penalty;
although on the self-same fact another penal provision involving a minor
punishment, viz., Section 56 would be attracted. It has to be read having
regard to the constitutional protection available to an accused as also other
civil consequences, if any, entailing therefor. While construing a penal
statute, in a case of this nature, it is' necessary to apply the rule of strict C
construction. [951-E-F)

Iqbal Singh Marwah and Anr. v. Meenakshi Marwah and Anr., [2005)
4 SCC 370 and Standard Chartered Bank and Ors. v. Directorate of
Enforcement and Ors., [2005) 4 SCC 530, referred to.
D
3.5. It is not in dispute that whereas if an offence is committed under
Section 56 of the Act, renewal of licence is permissible; but in a case where
a licensee faces a prosecution under Section 57, renewal of licence would
be denied to him. Consequences of attracting the provisions of Section 57,
thus, must also be judged from the said angle. (952-D-E)
E
3.6. A purposive construction can be applied if the statute is read as
a whole, requires such application. Upon construction of a statute, the
licensees are not guilty of any adulteration. [953-C)

S. Sundaram Pillai & Ors. etc. v. VR. Pattabiraman & Ors. etc., (1985) F
1 SCC 591 and Bhagwan Das Jain v. State of Punjab, (1993) Supp. 3 SCC
736, held not applicable.

3. 7. The High Court was correct in its view that the ingredients of
Section 57 of the Act are not attracted in the instant case. (949-HJ

Pratap Singh v. State of Jharkahnd and Anr., [2005) 3 SCC 551 and G
Mathai v. State of Kera/a, (20051 3 SCC 260, referred to.

CIVIL APPELLATE JURISDICTION: Civil Appeal No. 5300 of2006.

From the final Judgment dated 6.10.2004 of the High Court of Kerala
at Emakulam in W.A. No. 1054/2003 (A). H
938 SUPREME COURT REPORTS [2006] SUPP. 9 S.C.R.

A L.N. Rao, T.L.V. Iyer, K.N. Bhat, Shyam Divan, Roy Abraham, Seema
Jain, Himinder Lal, Ajay Kumar Jain, Dileep Pillai, M.P. Vinod, G. Prakash,
Beena Prakash, C.K. Sasi, C.M. Jayakumar, C. Harisankar, Jagdeesh N.
Kainikara and Neeru Vaid for the appearing Parties.

The Judgment of the Court was delivered by
B
S.B. SINHA, J. Delay condoned in S.L.Ps.

Leave granted.

Ahkari Act (for short, 'the Act') was enacted by Maharaja of Cochin
C By Act No. I 0 of 1967, it was extended to the whole of Kerala. By reason of
the provisions of the said Act, manufacture or sale of liquor, including country
liquor is regulated. The regulatory statute, indisputably, is made in terms of
Entry 8 of List II of the 7th Schedule of the Constitution of India. A licence
is granted under the Act. The licensee is indisputably required to carry out
the manufacture or sale of country liquor in terms of the provisions of the
D Act, rules framed thereunder as also the terms and conditions of the licence.

'Alcoho1.' has been defined in Rule 2(b) of the Kerela Rectified Spirit
Rules, l 972 in the following terms :

"Alcohol" means ethyl alcohol of any strength and purity having the
E chemical composition C2 H2 OH."

"Country Liquor" has been defined in Section 3(12) of the Act to mean
'toddy or arrack'.

'Toddy' has been defined in section 3(8) of the Act to mean :
F "Toddy" means fermented or unfermented juice drawn from
coconut, palmyra, date, or any other kind of palm tree."
,....
Rules were framed by the State of Kerala in exercise of its rule making
power conferred upon it under Section 5 of the Act, pursuant whereto or in
G furtherance whereof 'Kerala Abkari Shops (Disposal in Auction) Rules, 2002
were framed. Rule 9(2) of the said Rules reads as under :

"No toddy other than that drawn from the Coconut Plamyrah or
Choondapana palms shall be sold by the licensees. All toddy kept or
offered for sale should be of good quality and unadulterated. Nothing
shall be added to it to increase its intoxicating power or for any other
H
STATE OF KERALA v. UNNI [S.B. SINHA, J.] 939
purpose. The ethyl alcohol content of toddy kept or offered for sale A
drawn from Coconut, Palmyrah and Choondapana palms should not
exceed 8.1 % v/v 5.2% v/v and 5.9% v/vrespectively."

Violation of any of the provisions of the Rules, inter alia, attract the
penal provisions of Section 56 of the Act, clause (b) whereof reads as under:
B
"56. For misconduct by licensee, etc. - Whoever, being the holder of
a licence or permit granted under this Act or being in the employ of
such holder and acting on his behalf -

(a) ...

(b) Willfully does or omits to do anything in breach of any of the
c
conditions of his licence or permit not otherwise provided for in this
Act; or

shall, on conviction before a Magistrate, be punished for each such D
offence with imprisonment for a term which may extend to six months,

-
or with fine which may extend to two thousand rupees, or with both."

Section 57 of the Act, however, provides for a penal provision for
adulteration of liquor by a licenced vendor or manufacturer, in the following
terms : E
"57. For adulteration etc. by licensed vendor or manufacturer -
Whoever being the holder of a licence for the sale or manufacture of
liquor or of any intoxicating drug under this Act.

(a) mixes or permits to be mixed with the liquor or intoxicating· F
drug, other than a noxious drug or any foreign ingredient likely to
add to its actual or apparent intoxicating quality or strength, or any
article prohibited other than an article which the Government shall
deem to be noxious by any rule made under Section 29, clause (k),
when such admixture shall not amount to the offence of adulteration G
under Section 272 cif the Indian Penal Code; or

(b) .. .

(c) .. .

(d) .. .
H
940 SUPREME COURT REPORTS [2006) SUPP. 9 S.C.R.

A shall on conviction before a competent court, be punished for each
such offence with imprisonment for a term which may extend to five
years, or with fine which may extend to fifty thousand rupees, or
which both."

The State of Kerala published Excise Manual, the relevant provisions
B whereof are as under :

"6(a).-Fermented liquors : Toddy, Beer, Wines, etc. come under the
category of fermented liquors. The maximum self-generated alcohol
content that will be present in a fermented liquor, which is not fortified ...
is only 12% by volume. Because when alcohol reaches this volume,
c the yeast responsible for the fermentation is destroyed by its own
bye-product and no further alcohol formation is possible."

Paragraphs 4, 5 and 6 of Chapter X contained in volume II of the
Manual read as under :

D "4. The toddy yield from each kind of tree and the alcoholic strength
of toddy varies according to the season of the year, the time during
which it is drawn and other attendant circumstances. The daily average
yield for Excise Departmental purposes may be taken as I Yi litres
per coconut tree, 4Yi litres per palmyrah tree and 6Yi litres per sago
tree.
E
5. Alcoholic fermentation of toddy which is self generated by the
action of wild yeasts starts in the collecting pot itself and this continues
for a limited period - say a maximum period of 3 days. Subsequent
to this, bacterial (acetic) fermentation starts, bringing down the alcohol
content. The bacteria and pseudo yeasts are responsible for the rather
F
strong smell of toddy and the acidity developed. If toddy is left over
a period of time, (without even any other foreign matter being added
to it), alcohol content comes down and acetic acid is formed and this
is how vinegar (Acetic acid) is manufactured in many of the parts of
Kerala. At the peak point of fermentation, the average alcoholic
G strength of fermented toddy may be taken as follows :

Coconut 8.1 % by volume

Palmyrah 5.2% "

Date 4.9
H
STATE OF KERALA v. UNNI [S.B. SINHA, J.] 941

"Sago 5.9 " A
6. Toddy is claimed to be having considerable nutritive value and is
rich in sugars and vitamins. It is also claimed that "Toddy improves
the quality of blood and supplies the necessary vitamins for all the
organs, nerves and tissues of the body, that it is good diuretic and has
been utilized effectively in cases of Lithasis, that it is preventive for B
the occasional diseases, such as silicosis and pneumoconioisic which
is a fibrous of the lungs caused by the inhalation of silicious particles
of dust of grit". It can be consumed in reasonable amounts without
harm to the system."

In State of Kera/a and Ors. v. Maharashtra Distilleries Ltd. and Ors., C
[2005] 11 SCC 1, the history of the said Act and its subsequent amendments
were noticed by a Constitution Bench of this Court.

On obtaining samples of toddy taken from the business premises of the
licensees, it was, inter a/ia, found that ethyl contained therein was 9.50% v/
v. They were prosecuted under Section 57(a) of the Act. D
It is not in dispute that if a prosecution is instituted under Section 57(a)
of the Act, renewal of the licence shall not be granted, whereas renewal of
the licence would not be a bar if the licensee is prosecuted under Section 56
thereof.
E
Writ petitions were filed, inter alia, questioning the validity or otherwise
of Rule 9(2) of the Rules and/or applicability of Section 57(a) of the Act, in
the event sample of toddy was found to be exceeded 8.1 %.

A learned Single Judge of the Kerala High Court by a judgment and F
order dated 3 l.03.2003 held the said rules to be ultra vires. The learned
,. Single Judge, however, did not consider it necessary to go into the question
of interpretation of the two penal provisions viz. Section 56(b) and Section
57(a) of the Act. The criminal proceedings as against the licensee were
quashed. In an intra-court appeal, the Division Bench, however, upheld the
validity of Rule 9(2) of the Rules, opining that it had not imposed any G
condition which was unworkable and/or was impossible to be performed.
Upon construction of Section 56(b) and Section 57(a), it was opined that
having regard to the fact that ethyl alcohol is an essential component or
ingredient of toddy, only because percentage of ethyl alcohol found to be
more, it would not amount to addition of a foreign ingredient as envisaged H
942 SUPREME COURT REPORTS [2006] SUPP. 9 S.C.R.

A under Section 57(a) of the Act. It was, therefore, held :
"In the result, the challenge against the vires of Rule 9(2) of the
Abkari Shops (Disposal in Auction) Rules, 2002 is repelled.
Prosecution proceedings against the Respondents under Section 56(b) •
of the Abkari Act are not liable to be declared illegal. Proceedings to
B prosecute the Respondents under Section 57(a) of the Act are quashed."

The Division Bench of the High Court in subsequent cases followed its
earlier orders.

Both the licensees as also the State of Kerala are before us.
c Mr. K.N. Bhat, the learned Senior Counsel appearing on behalf of the
State, would submit that the provisions of Section 57(a), in view of its purport
and object must receive a purposive construction as even in a case of
fermentation; once the percentage of ethyl alcohol is found to be in excess
of the permissible limit, the same would amount to addition of foreign material
D so as to attract the provision of Section 57(a) of the Act. Stro11gI.eliance, in
this behalf, has been placed on S. Sundaram Pillai and Ors. etc. v. V.R.
Pattabiraman and Ors. etc., (1985] 1 SCC 591].

The learned counsel would furthermore submit that the law must receive
strict interpretation where adulteration of an edible commodity is alleged.
E Reliance, in this behalf, has been placed on Bhagwan Das Jain v. State of
Punjab, [1993] Supp. 3 SCC 736].

The learned counsel appearing on behalf of Respondents, on the other
hand, would submit that Rule 9(2) should have been declared ultra vires as
it is unworkable. It was urged that there does not exist any mechanical
F equipment to measure the contents of ethyl alcohol in toddy. Even the Excise
Department, it was contended, did not have any facility in this behalf and
each sample is sent to the laboratory for chemical analysis.

Excise Manual has been made by the State ofKerala itself. It is presumed
G to have been prepared upon making scientific studies. It has defined 'fermented
liquor', which states that the maximum self-generated alcohol content that
would be present in a fermented liquor, which is not fortified, is only 12%
by volume. It is not the case of the State that the licensees had added any
foreign material. Paragraph 5 occurring in Chapter X of the Excise Manual,
however, provides that average alcoholic strength offermented toddy may be
H taken as follows :
STATE OF KERALA v. UNNI [S.B. SINHA, J.] 943
Coconut ... 8.1% by volume A
Palmyrah 5.2% "

Date 4.9

"Sago 5.9 " "
[Emphasis supplied] B
It, therefore, does not rule out the possibility of fermented toddy
containing ethyl alcohol of more 8.1% v.v. It is accepted that the fermentation
is a natural process. No scientific data is available on records, nor the State
could furnish any information as to how much time would it require for C
toddy to become fermented which would contain more than 8.1 % of ethyl
alcohol. Toddy, as noticed hereinbefore, has been defined in Section 3(8) of
the Act, to include fermented or unfermented juice drawn from coconut tree.

Rule 9(2) of the said Rules, in our opinion, should be given a plain
meaning. It should be read in its entirety. It is in two parts. The intention of D
the legislature must be gathered having regard to the expressions used therein.
Rule 9(2) read in its entirety, states the context that thereby what is essentially
sought to be prevented is adulteration of toddy. It is aimed at prevention of
adulteration. The penal provision contained in first part not only directs that
all toddy kept or offered for sale should be of good quality and unadulterated
but also provides that nothing shall be added to it to increase its intoxicating E
power or for any other purpose. If the second part prescribing the contents
9f the ethyl alcohol in toddy is read in the context of the first part vis-a-vis
Section 57(a) of the Act, it would be evident that prohibition is aimed at
adulteration by addition of any foreign substance to increase its·intoxicating
power or for any other purpose. F
Validity of Rule 9(2), therefore, can be saved if the said provision is
read in its entirety and rule of harmonious construction is resorted to. If,
however, Rule 9(2) is sought to be invoked even for the purpose of initiating
a prosecution as against a licensee even he does not add any foreign substance
to it, the same, in our opinion, would render the same ultra vires, as would G
appear from the discussions made hereinafter.

It is not in dispute that there does not exist any mechanical devise to
measure the contents of ethyl alcohol present in toddy. It also stands admitted
that contents of ethyl alcohol in toddy would depend upon various factors
H
·~.
944 SUPREME COURT REPORTS [2006) SUPP. 9 S.C.R.

A including weather, season or pot in which it is kept etc.

Judicial notice can be taken of the fact that each village would not have
a chemical laboratory where the process of analysis of ethyl alcohol can be
carried out. For example, if a sample is taken in a village, by the time sample
is sent for and is analyzed, the volume of ethyl alcohol may increase. Although
B we are informed that some chemical is mixed when a sample is taken, no
material has been placed in that behalf.

The validity or otherwise of Rule 9.2 must be considered from this
point of view.

C The constitutionality of a statute is presumed in view of the principles
laid down in 'ut rest magis va/eat quam pareat '.

The principles on which constitutionality of a statute is judged and that
of a subordinate legislation are different.

D We have noticed the definition of 'toddy'. It does not limit the extent
of fermentation. Fermented toddy would, therefore, come within the purview
of definition of toddy. Manufacture and sale of toddy, which is fermented, is
not prohibited. Excise Manual clearly points out that the contents of ethyl
alcohol by reason of fermentation in toddy can go upto 12%, whereafter only
E it ceases to be a toddy. While laying down tlie norms in Excise Manual, the
State had used the words 'average yield'. The percentage specified therein,
thus, is only average.

If by reason of tht: rule making power, the State intended to impose a
condition~ the same was required to be reasonable one. It was required to
F conform to the provisions of the statute as its violation would attract penal
liability. It was expected to be definite and not vague. Indisputably, the State
having regard to the provisions of Article 47 of the Constitution of India,
must strive hard to maintain public health. While, however, imposing
conditions in regard to the prescription of norms, it was expected of the State
to undertake a deeper study in the matter. It should have undertaken actual
G experiments. It should have specified mode and manner in which the
percentage of ethyl alcohol can be found out by the licensee. A subordinate
legislation can be questioned on various grounds. It is also well-known that
a subordinate legislation would not enjoy the saine degree of immunity as a
legislative act would. [See Vasu Dev Singh & Ors. v. Union of India & Ors.,
H (2006) 11 SCALE 108).
STATE OF KERALA v. UNNI [S.B. SINHA, J.] 945
In Kera/a Samsthana Chethu Thozhi/a/i Union v. State of Kera/a and A
Ors., [2006] 4 SCC 327, this Court while interpreting the provisions of the
same Act, opined :

'The Rules in terms of sub-section (l) of Section 29 of the Act, thus,
could be framed only for the purpose of carrying out the provisions
of the Act. Both the power to frame rules and the power to impose B
terms and conditions are, therefore, subject to the provisions of the
Act. They must conform to the legislative policy. They must not be
contrary to the other provisions of the Act. They must not be framed
in contravention of the constitutional or statutory scheme."

It was furthermore held : c
"Furthermore, the terms and conditions which can be imposed by the
State for the purpose of parting with its right of exclusive privilege
more or less have been exhaustively dealt with in the illustrations in
sub-section (2) of Section 29 of the Act. There cannot be any doubt D
whatsoever that the general power to make rules is contained in sub-
section (I) of Section 29. The provisions contained in sub-section (2)
are illustrative in nature. But, the factors enumerated in sub-section
(2) of Section 29 are indicative of the heads under which the statutory
framework should ordinarily be worked out.

Neither Section 18-A nor sub-sections (c) and (d) of Section 24 of the
E
Act confer power upon the de legatee to encroach upon the jurisdiction
of the other department of the State and take upon its head something
which is not within its domain or which otherwise would not come
within the purview of the control and regulation of trade in liquor.
The conditions imposed must be such which would promote the policy F
or secure the object of the Act. To grant employment to one arrack
worker in each toddy shop in preference to the toddy workers neither
promotes the policy nor secures the object of the Act. It is not in
dispute that the purport and object of such Rules is to rehabilitate the
former employees of arrack shops. Rehabilitation of the employees is G
not within the statutory scheme and, thus, the Rules are ultra vires the
provisions of the Act."

Unreasonableness is one of the grounds of judicial review of delegated
legislation. Reasonableness of a statute or otherwise must be judged having
regard to the various factors which, of course, would. include the effect thereof H
946 SUPREME COURT REPORTS [2006] SUPP. 9 S.C.R.

A on a person carrying on a business.
While we are not oblivious cif the fact that nobody has any fundamental
right to carry on business in toddy or liquor, but all the licensees are entitled
to be treated equally. If the matter of validity or otherwise of the subordinate
legislation is to be considered, Article 14 of the Constitution of India shall
B be attracted. [See State of Punjab and Anr. v. Devans Modern Breweries Ltd
and Anr., [2004] 11 SCC 26, Ashok Lanka and Anr. v. Rishi Dikshit and
Or~., [2005] 5 SCC 598 and Ashok Lanka-II v. Rishi Dikshit, [2006] 9 SCC
90].

When a statute provides for a condition which is impossible to be
C performed, unreasonableness of a statute shall be presumed. rt'!would be for
the State in such a situation to justify the reasonableness thereof.

The Division Bench has, in our opinion, posed a wrong question unto
itself when it proceeded on the premise that availability of a mechanical
D instrument to measure the contents of ethyl alcohol is of no moment. When
a subordinate legislation imposes conditions upon a licensee regulating the
manner in which the trade is to be carried out, the same must be based on
reasonable criteria. A person must have means to prevent commission of a
crime by himself or by his employees. He must know where he stands. He
must know to what extent or under what circumstances he is entitled to sell
E liquor. The statute in that sense must be definite and not vague. Where a
statute is vague, the same is liable to be struck down. [Hamdard Dawakhana
(Wakf) Lal Kuan, Delhi and Anr. v. Union of India and Ors., AIR (1960) SC
554].

The learned Single Judge although did not deal with the matter in
F details, but was of the opinion that the statute is not workable.

Workability of a statute vis-a-vis the question as to whether it is vague
or otherwise must also be considered having regard to the question as to
whether it is at all practical.

G We must state that where two interpretations are possible, having regard
to the workability or unworkability of a statute, the one which leads to the
workability of the statute must be preferred than the other, keeping in view
the principle 'ut rest magis valeat quam pereat'. [See State of Tamil Nadu v.
MK. Kandaswami and Ors., [1975] 4 SCC 745].
H
..
ol

STATE OF KERALA v. UNNI [S.B. SINHA, J.] 947

We may, however, notice some precedents operating in the field : A
In MK. Kandawami (supra), this Court observed :

"It may be remembered that Section 7-A is at once a charging as well
as a remedial provision. Its main object is to plug leakage and prevent
evasion of tax. In interpreting such a provision, a construction which B
would defeat its purpose and, in effect, obliterate it from the statute
book, should be eschewed. If more than one construction is possible,
that which preserves its workability, and efficacy is to be preferred
to the one which would render it otiose or sterile. The view taken by
the High Court is repugnant to this cardinal canon of interpretation."
c
In Commissioner of Sales Tax, Delhi and Ors. v. Shri Krishna Engg.
Company and Ors., [2005] 2 SCC 692, it was opined :

"In State of T.N. v. MK. Kandaswami this Court held that where the
object of a provision is to plug leakage and prevent evasion of tax,
in interpreting such provision, a construction which would defeat its D
purpose and, in effect, obliterate it from the statute-book should be
eschewed. If more than one construction is possible, that which
preserves its workability and efficacy is to be preferred to the one
which would render it otiose or sterile."

The said decision was on a interpretation of a taxing statute. E
Interpreting a rent control legislation, Lahoti, J. (as His Lordship then
was) in Rakesh Wadhwani and Ors. v. Jagdamba Industrial Corporation and
Ors., [2002] 5 SCC 440, opined :

"There are two means of resolving the riddle: firstly, by placing such F
meaningful interpretation on the provision as would enable the
legislative intention being effectuated; and secondly, by devising such
procedure without altering the structure as would enable the substantive
law being meaningfully implemented. Let us see whether the
expression "assessed by the Controller" qualifies only "the cost of G
application" or qualifies the entire preceding expression i.e. "the arrears
of rent and interest at six per cent per annum on such arrears together
with the cost of application". As there is ambiguity and the provision
is susceptible to two meanings, the court should interpret it in the
manner which will best serve the object sought to be achieved .... "
H
....
.
948 SUPREME COURT REPORTS [2006) SUPP. 9 S.C.R.

A Here, no two interpretations are possible for upholding the validity of
statute. Applying the principle of law as enunciated by this Court in the
decisions noticed hereinbefore, no interpretation would make the statute
workable or definite and thereafter, valid in law.

We are concerned herein with construction of a penal statute.
B
Is it possible for a licensee to apply for renewal of his Iicnece in terms
of Section 57 of the Act is the core question.

Toddy ferments automatically after sun rise. If it is permitted to be sold
within a timeframe after toddy is tapped, reasonableness can be inferred; but
C at what point of time precisely ethyl alcohol content would exceed 8.1 % in
a toddy is not known. It will bear repetition to state that the same would
depend upon several factors including the climate. It is reasonable to expect
that the State would frame rules in consonance with equity and good
conscience. A rule may not be worked out if it imposes a condition which,
D unless some other guidelines are issued, would become impossible-ito be
performed. We must remind ourselves that the consequences of a single
violation may be disastrous. If the contention of the State is correct, it would
not only result in penal consequences, but would also lead to non-renewal of
the licence. The licensee, thus, for all intent and purport looses his right to
carry on business. Carrying on trade of liquor may not be a fundamental
E right, but it is a contractual right given to him in terms of the provisions of
a statute. The terms and conditions are governed by statute. The violation
thereof would lead to penal consequences. Interpretation of statute in the
aforementioned situation rests on the principle of reasonableness, equity as
well as good conscience.

F There exists a presumption that the framers of the statute intended to
make it reasonable. [See Bharat Hydro Power Corporation Ltd. & Ors. v.
State of Assam and Anr., [2004] 2 SCC 553; and Bombay Dyeing &
Manufacturing Co. Ltd. (3) v. Bombay Environmental Action Group & Ors.,
and [2006] 3 SCC 434 Paras 201 & 214].
G
A person may be held to be guilty even if the contents of ethyl alcohol
exceed 8.1% marginally. He must, therefore, be in a position to know as to
what extent he can go and to what extent he cannot. The matter cannot, thus,
be left to an act of nature. A penal provision must be definite. Unless the
statutory intention otherwise provides, existence of mens rea must be read
H into a penal statute. It must be a deliberate act and not an unintentional one,
STATE OF KERALA v. UNNI [S.B. SINHA, J.] 949

unless the statute says so explicitly or by necessary implication. The Act or A
the Rules do not say either. It is in that sense vague or unreasonable.

Once, thus, it is found to be ex facie unreasonable and unworkable, the
court would not hesitate to strike down the said rule. We do so.

We for the reasons aforementioned, hold Rule 9(2) to be unworkable B
being vague in nature, unless read in the manner as suggested supra.

~ We may now consider interpretation of Sections 56(b) and 57(a) of the
Act.

Sections 56 and 57 operate in different fields. They lead to different c
consequences. They provide for different punishments. Whereas Section 56
contemplates penal action in the event terms and conditions of a licence are
found to have been violated; Section 57 of the Act speaks of adulteration.
The contention of the State, therefore, must be judged from the aforementioned
context.
D
A person may violate rule, but thereby may not adulterate liquor.
Whereas violation of the rule may be intentional or unintentional attracting
penal provisions of Section 56 of the Act. Violation of the provisions of
Section 57 rests on existence of mens rea or actus reus on the part of the
offender. In a case where extract of juice is subject to automatic fermentation, E
one does not have to mix anything for increase of contents of ethyl alcohol.
It is not the case of the State that the licensee has deliberately mixed additional
ethyl alcohol in the liquor so as to increase the potency thereof.

Section 57 provides for graver offence. If one act attracts two offences,
the one providing for higher punishment cannot be presumed to apply unless F
ingredients thereof are satisfied.

A penal statute must receive strict construction. Only in exceptional
cases the principles of purposive construction shall apply to a penal statute.
[See Indian Handicrafts Emporium and Ors. v. Union of India and Ors.,
G
[2003] 7 SCC 589 and Bairam Kumawat v. Union of India and Ors., [2003] ,..
1 sec 628].

In this case we are satisfied that the High Court was correct in its view
that the ingredients of Section 57 of the Act are not attracted in the instant
case. H
ti
•
...
950 SUPREME COURT REPORTS [2006] SUPP. 9 S.C.R.

A In Pratap Singh v. State ofJharkahnd and Anr., [2005] 3 SCC 551, this
Court opined :

"Interpretation of a statute depends upon the text and context thereof
and having regard and object with which the same was made."

B In Mathai v. State of Kera/a [2005] 3 SCC 260, distinguishing between
a charge under Section 325 and a charge under Section 326, this Court held:

"Some hurts which are not like those hurts which are mentioned in
t!le first seven clauses, are obviously distinguished from a slight hurt,
may nevertheless be more serious. Thus a wound may cause intense
C pain, prolonged disease or lasting injury to the victim, although it
does not fall within any of the first seven clauses. Before a conviction
for the sentence of grievous hurt can be passed, one of the injuries
defined in Section 320 must be strictly proved, and the eighth clause
is no exception to the general rule of law that a penal statute must be
D construed strictly."

We are not oblivious that there are certain exceptions to the said . rule.
In Iqbal Singh Marwah and Anr. v. Meenakshi Marwah and Anr., [2005] 4
SCC 370, a Constitution Bench of this Court held :

"Dr. Singhvi has also urged that since we are dealing with a penal
E
provision it should be strictly construed and in support of his
proposition he has placed reliance upon a Constitution Bench decision
in Tolaram Relumal v. State of Bombay wherein it was held that it is
well-settled rule of construction of penal statutes that if two possible
and reasonable constructions can be put upon a penal provision, the
F court must lean towards that construction which exempts the subject
from penalty rather than the one which imposes penalty and it is not
competent for the court to stretch out the meaning of expression used
by the legislature in order to carry out the intention of the legislature.
Tl:e contention is that since Section 195(1 )( b )( ii ) affords protection
G from private prosecution, it should not be given a restrictive
interpretation to curtail its scope. We are unable to accept such broad
proposition as has been sought to be urged. In Craies on Statute Law
(l 971 Edn., Chapter 21 ), the principle regarding penal provisions has
been stated as under:

H "But penal statutes must never be construed so as to narrow the
STATE OF KERALA v. UNNI [S.B. SINHA, J.] 951
words of the statute to the exclusion of cases which those words A
in their ordinary acceptation would comprehend. 'But where the
thing is brought within the words and within the spirit, there a
penal enactment is to be construed, like any other instrument,
according to the fair common-sense meaning of the language
used, and the court is not to find or make any doubt or ambiguity
in the language of a penal statute, where such doubt or ambiguity B
would clearly not be found or made in the same language in any
other instrument'.
"In lalita Jalan v. Bombay Gas Co. ltd., this question was
examined in considerable detail and it was held that the principle
that a statute enacting an offence or imposing a penalty is to be C
strictly construed is not of universal application which must
necessarily be observed in every case. The Court after referring
to Murlidhar Meghraj Loya v. State of Maharashtra, Kisan
Trimbak Kothula v. State of Maharashtra, Supdt. and
Remembrancer of legal Affairs to Govt. of W.B. v. Abani Maity D
and State of Maharashtra v. Natwarlal Damodardas Soni, held
that the penal provisions should be construed in a manner which
will suppress the mischief and advance the object which the
legislature had in view."

We are, however, dealing with a different situation. Section 57 must E
also receive strict construction, having regard to the fact that thereby an
offence proved would lead to a higher penalty; although on the self-same fact
another penal provision involving a minor punishment, viz., Section 56 would
be attracted. It has to be read having regard to the constitutional protection
available to an accused as also other civil consequences, if any, entailing
therefor. While construing a penal statute, in a case of this nature, it is F
necessary to apply the rule of strict construction.

In Standard Chartered Bank and Ors. v. Directorate of Enforcement
and Ors., [2005] 4 SCC 530, yet again a Constitution Bench in a case where
two different interpretations were possible, opined :
G
"The counsel for the appellant contended that the penal provision in
the statute is to be strictly construed. Reference was made to Tolaram
Relumal v. State of Bombay, SCR at p. 164 and Girdhari Lal Gupta
v. D.H. Mehta. It is true that all penal statutes are to be strictly
construed in the sense that the court must see that the thing charged fl'
~-
,t
,.. ....
952 SUPREME COURT REPORTS [2006] SUPP. 9 S.C.R.

A as an offence is within the plain meaning of the words used and must
not strain the words on any notion that there has been a slip that the
thing is so clearly within the mischief that it must have been intended
to be included and would have been included if thought of. All penal
provisions like all other statutes are to be fairly construed according
to the legislative intent as expressed in the enactment. Here, the
B legislative i:ltent to prosecute corporate bodies for the offence
committed by them is clear and explicit and the statute never intended
to exonerate them from being prosecuted. It is sheer violence to
common sense that the legislature intended to punish the corporate
bodies for minor and silly offences and extended immunity of
C prosecution to major and grave economic crimes."

The matter may have to be considered from another angle. Renewal of
a licence is a valuable right. [See D. Nataraja Mudialiar v. The State Transport
Authority, Madras, AIR (1979) SC 114].

D It is not in dispute that whereas if an offence is committed under Section
56 of the Act, renewal of licence is permissible; but in a case where a
licensee faces a prosecution under Section 57, renewal of licence would be
denied to him. Consequences of attracting the provisions of Section 57, thus,
must also be judged from the said angle.

E Reliance placed by Mr. Bhat upon Sundaram Pillai (supra), in our
opinion, is wholly misplaced. The court therein was considering a rent control
statute. It laid down law with regard to the interpretation of 'proviso' and
'explanation'. It was while so doing referred to the well-known decision of
Seaford Court Estates Ltd. v. Asher, [1949] 2 All ER 155: (1969) 2 KB 481
F (CA)], stating :

"It has been observed that statutory prov1s1ons must be so
construed, ifit is possible, that absurdity and mischief may be avoided.
Where the plain and literal interpretation of a statutory provision
produced a manifestly absurd and unjust result, the court might modify
the language used by the Legislature or even do some violence to it
G
so as to achieve the obvious intention of the Legislature and produce
rational construction and just results. See in this connection, the
observations in the case of Bhag Mal v. Ch. Parbhu Ram. Lord
Denning in the case of Seaford Court Estates Ltd. v. Asher has
observed :
H
STATE OF KERALA v. UNNI [S.B. SINHA, J.) 953
"if the makers of the Act had themselves come across this ruck A
in the texture of it, they would have straightened it must not alter the
material of which the Act is woven, but he can and should iron out
the ceases."

Ironing out the creases is possible but not rewriting the language
_to serve a notation of public policy held by the Judges. Legislature B
must have legislated for a purpose by Act 23 of 1973 and used the
expression "shall be construed" in Explanation in the manner it did."

It, however, added a note of caution that a purposive construction can
be applied if the statute is read as a whole, requires such application. C
Reliance upon Bhagwan Das Jain (supra), in our opinion, is also
misplaced. In fact, upon construction of a statute, we have held that the
licensees are not guilty of any adulteration. The said decision has, therefore,
no application.
D
For the reasons aforementioned, Civil Appeals arising out of Special
Leave Petition (Civil) Nos. 3612 of2005, 6769-75 of2005 and 7003 of2006
filed by the State of Kerala are dismissed and Civil Appeals arising out of
Special Leave Petition (Civil) Nos. 5130 of2005, 14189 of2006 and 18142
of 2006 are allowed. No costs.
E
S.K.S. Civil Appeals 5288, 5299, 5300 are dismissed
Civil Appeal Nos. 5296, 5297, 5301 are allowed.