2013 Supreme(MP) 244

HIGH COURT OF MADHYA PRADESH
(FULL BENCH)
S.K. Gangele, Sheel Nagu and Sujoy Paul, JJ.
Pratibha Chouhan (Smt.) v. State of M.P. and others
Writ Petitions No.3205, 2565, 3028, 3033, 3164, 3892, 4234, 5020 and 5958 of 2010, 4396 and 4651 of 2011 (Gwalior);
Decided on 29.4.2013.

Headnote:Per Gangele, J. --

       (1) Arms Act, 1959 -- Ss.13, 14 and 15(3) -- Arms Rules, 1962 -- R.54, Form XII -- grant or renewal of arms licence -- authority for such purpose -- District Magistrate is licensing authority for grant of certain guns licence -- State Government is licensing authority for arms dealer licence. [Paras 11 & 14

       (2) Arms Act, 1959 -- Ss.13, 14 and 15(3) -- Arms Rules, 1962 -- R.54 -- jurisdiction under -- application for renewal of arms dealer licence -- rejected on certain grounds -- for purpose of renewal -- issuance of certain guidelines and fixation of standard by State Government -- not without jurisdiction -- licensing or renewal authority has discretion under Act and Rules.

       Additional Secretary, Government of M.P. issued certain guidelines for renewal of arms dealer licence. These guidelines are that if the dealer fails to sell less than 25 arms and 2500 cartridges in a year, then his licence shall not be renewed.[Para 15

       Held : The Act of 1959 and Rules made thereunder give discretion to the licensing authority in regard to grant of licence or refusal of licence so also renewal of licence and refusal of renewal the licence, hence, within the parameters of the Act of 1959 and Rules of 1962, the licensing authority can frame guidelines in order to bring uniformity in the matter of grant or refuse arms dealer licence or grant or refuse to renewal of arms dealer licence, then it cannot be said that the licensing authority has no such power.

       Statutory body has power to fix guidelines in regard to exercise of discretion vested in it by a statutory provision. In the present case also the Act of 1959 and Rules of 1962 endowed discretion on the authority in regard to renewal of arms dealer licence and in such circumstances the authority has right to frame certain guidelines, or instructions for the purpose of exercising its own discretion in individual case.

       Answer of substantial questions :

       (i) That the State Government or its authorities are competent to issue executive instructions or conditions for issuing, varying or renewing the arms licence as far as the aforesaid conditions or instructions are not contrary to the provisions of Act of 1959 and Rules of 1962 or statutory order issued thereunder from time to time by the Union of India in exercise of power of discretion endowed on the authorities under the provisions of Act of 1959 and Rules of 1962.

       (ii) That the view taken by the Gwalior Bench in Arun Mangal and others v. State of M.P. and others [Writ Petition No.1224/2005] to the effect that the State authorities are competent to issue instructions to a licencing authority in regard to grant of licence in exercise of discretion by the authorities provided to them under Act of 1959 and Rules of 1962 is in accordance with law and correct.

       (iii) That as regard to the decision of the learned Single Judge in Writ Petition No.838/2000 (Jiyauddin and others v. State of M.P. and another), the aforesaid judgment was decided by the learned Single Judge vide common order dated 19.7.2000 passed in Writ Petitions No.836, 838 and 839 of 2000. The judgment is reported in 2001(1) MPHT 445. In the aforesaid judgment, the Court has not discussed about the power of discretion endowed on the licensing authority under the Act of 1959 and Rules of 1962. We have earlier observed that in the facts of the case, learned Judge has rightly observed that a particular circular in regard to verificatrion that the person holding valid and genuine licence was not within the competence of the State authority. Hence, the aforesaid judgment is in accordance with law. In the order passed in Writ Petition No.8715/2011 (Mulla Sabbir Hussain v. State of M.P. and another), the Court has not discussed the power of the Government about issuance of circular and the discretion given to the licensing authority under the Act of 1959 and Rules of 1962. Hence, the aforesaid order is not in accordance with law. Similarly, in Writ Petition No.6265/2006 (Surendra Kumar Yadav and another v. State of M.P. and others), the discretion given to the licensing authority under the provisions of Act of 1959 and Rules 1962 has not been considered. Before the Court, the order passed by the District Magistrate was under challenge to the effect that the person had to deposit empty cartridges shell at the time of sell of cartridges. In the aforesaid judgment, the discretion given to the licensing authority has not been considered, hence, the judgment is distinguishable. The view taken by the Gwalior Bench in Writ Petition No.1224/2005, which was affirmed in Writ Appeal No.561/2007, is correct to the extent it is in consonance of the view expressed by us in answer to question No (i). We further observe that the Court has to consider the instructions issued by the State authorities or licensing authority in accordance with answer to substantial question No.1. (2009)3 SCC 157 and AIR 1974 SC 1445 referred to.

       Per Nagu, J. --

       (3) Arms Act, 1959 -- S.17(1) -- conditions for renewal of licence -- can be varied by licensing authority except those which already prescribed -- notification dated 16.7.2010 issued by State Government -- certain conditions for certain arms, ammunition and renewal of licence prescribed -- such conditions can be prescribed by licensing authority.

       Held : By virtue of section 17(1) empowering the licensing authority to prescribe condition as regards description and quantity of arms and ammunition. Thus, while issuing a licence to keep or sell arms or ammunition, the licensing authority can provide the description and quantity of arms and ammunition, which gives an indication that the restriction placed by the impugned notification dated 16.7.2010 prescribing for certain number of arms and ammunition as a condition precedent for renewal of licence can very well be prescribed by the licensing authority.

       Since the statute in section 17(1) of the Arms Act, 1959 clearly empowers the licensing authority to vary those conditions of the licence subject to which it is granted except those which have been prescribed and since no specific quantities of arms and ammunition have been prescribed under columns 4 and 5 of Forms XII and XIII, the State Government is well within its powers to prescribe for certain quota of arms and ammunition as a condition precedent for grant or refusal of licence in question.

       Per Paul, J. --

       (4) Arms Act, 1959 -- Ss.13, 14, 15 and 17 -- Constitution of India -- Art.162 -- licensing authority -- power of -- has power to issue executive instructions or conditions for issuing, varying or renewing arms licence -- unless said instructions are not contrary to provisions of Act and Rules -- provisions of section 17 does not deal with renewal of licence. [Paras 36 to 41

       (5) Arms Act, 1959 -- Ss.13, 14, 15, 43 and 44 -- Constitution of India -- Arts.246, 162 and 73, Sch.VII List 1 -- renewal of licence -- power to make rules -- vested with Central Government -- State Government has power to issue executive instructions on which it has power to legislate -- merely because Central Government has not made any rule -- it will not give authority to State Government to make rule or issue executive instructions.

       Held : In the light of aforesaid provisions of the Constitution, Arms Act and the judgments on the subject, I humbly disagree with the view taken that the licensing authority is competent to issue executive instructions unless the said instructions are not contrary to the provisions of the Act and Rules. At the cost of repetition, in my opinion, a field which is totally occupied and covered under the entry of Union list, on which the Central Government/Parliament has exclusive power to legislate, the State Government cannot issue executive instructions. Instruction can only be issued by licensing authority to regulate its own discretion vested/conferred on it under sections 13 to 15 of 1959 Act.

        [Paras 43 & 42

       The limited extent within which the licensing authority can issue executive instruction/policy is the discretion vested in it as per sections 13 and 14 of 1959 Act. In other words, instructions can be issued for regulating the discretion within the fourcomers of 1959 Act. In my opinion executive instructions cannot be issued beyond aforesaid because it is within the province of Parliament and the exclusive power is with the Central Government/Parliament to legislate or issue executive instruction on it. Thus, there will be no illegality if executive instructions are issued to regulate the discretion in accordance with the power given to the licensing authority under sections 13 and 14 of the Act. This is the thin distinction which needs to be emphasized. Earlier judgments distinguished. 1983 JLJ 572, (2009)4 SCC 94, (1990)4 SCC 557, (1991)3 SCC 239 and AIR 1974 SC 1445 referred to.

        [Paras 47 & 48

       U;k- xaxsys &&

       ¼1½ vk;q/k vf/kfu;e] 1959 && /kkjk 13] 14 rFkk 15¼3½ && vk;q/k fu;e] 1962 && fu-54] iz:i 12 && vk;q/k vuqKfIr dk iznku djuk ;k uohdj.k && bl iz;kstu ds fy;s izkf/kdkjh & dfri; canwdksa dh vuqKfIr iznku djus ds fy;s ftyhk eftLVªsV vuqKkiu izkf/kdkjh gS && vk;q/k O;kSgkjh vuqKfIr ds fy;s jkT; ljdkj vuqKkiu izkf/kdkjh gSA ¼iSjk 11 rFkk 14

       ¼2½ vk;q/k vf/kfu;e] 1959 && /kkjk 13] 14 rFkk 15¼3½ && vk;q/k fu;e] 1962 && fu-54 && mica/kksa ds v/khu vf/kdkfjrk && vk;q/k O;kSgkjh vuqKfIr ds uohdj.k ds fy;s vkosnu && dfri; vk/kkjksa ij [kkfjt fd;k x;k && uohdj.k iz;kstu ds fy;s && jkT; ljdkj }kjk dfri; ekxZnf’kZdk tkjh djuk rFkk ekud fu;e djuk && vf/kdkfjrk jfgr ugha && vf/kfu;e rFkk fu;eksa ds varxZr vuqKkiu ;k uohdj.k izkf/kdkjh dk foosdkf/kdkj gSA

       e-iz- ljdkj ds vij lfpo }kjk vk;q/k O;kSgkjh vuqKfIr ds uohdj.k ds fy;s dfri; ekxZnf’kZdk tkjh dh xbZA ekxZnf’kZdk ;s gS fd ,d o”kZ esa ;fn O;kSgkjh 25 vk;q/k rFkk 2500 dkjrwl ds de fodz; djus esa vlQy jgrk gS] rc mldh vuqKfIr dk uohdj.k ugha fd;k tk,xkA

       vfHkfu/kkZfjr % 1959 ds vf/kfu;e rFkk mlds varxZr fufeZr fu;e vuqKkiu izkf/kdkjh dks vuqKfIr iznku djus ;k vuqKfIr ls bUdkj djus[ leku :i ls blh rjg vuqKfIr dk uohdj.k djus rFkk uohduj.k ls bUdkj djus ds laca/k esa foosdkf/kdkj iznku djrs gS] blfy,] izkpy 1959 ds vf/kfu;e rFkk 1962 ds fu;eksa ds Hkhrj] vuqKkiu izkf/kdkjh vk;q/k O;kSgkjh vuqKfIr iznku ;k bUdkj djus ;k vk;q/k O;kSgkjh vuqKfIr dk uohdj.k djus ;k bUdkj djus ds fo”k; esa ,d:irk ykus ds vuqdze esa ekxZnf’kZdk fojfpr dj ldrk gS] rc ;g ugha dgk tk ldrk fd vuqKkiu izkf/kdkjh dks ,slh ‘kfDr ugha gSA

       dkuwuh fudk; dks dkuwuh mica/k }kjk blesa fufgr foosdkf/kdkj dk iz;ksx dj ekxZnf’kZdk fu;e dh ‘kfDr gSA bl izdj.k esa Hkh 1959 dk vf/kfu;e rFkk 1962 ds fu;e izkf/kdkjh dks vk;q/k O;kSgkjh vuqKfIr uohdj.k ds laca/k esa foosdkf/kdkj laiUu djrs gS vkSj ,slh ifjfLFkfr;ksa esa izkf/kdkjh dks izR;sd izdj.k esa vius foosdkf/kdkj dk iz;ksx djus ds iz;kstu ds fy;s dfri; ekxZnf’kZdk,¡ ;k vuqns’k fojfpr djus dk vf/kdkj gSA

       lkjoku iz’uksa dk mRrj %

       ¼1½ jkT; ljdkj ;k blds izkf/kdkjh vk;q/k vuqKfIr tkjh djus] ifjofrZr djus ;k uohdj.k djus ds fy;s iz’kkldh; vuqns’k ;k ‘kRrsZ tkjh djus ds fy;s l{ke gS tgk¡ rd fd mi;qZDr ‘krsZa ;k vuqns’k 1959 ds vf/kfu;e rFkk 1962 ds fu;eksa ;k muds v/khu Hkkjr la?k }kjk 1959 ds vf/kfu;e rFkk 1962 ds fu;eksa ds v/khu foosdkf/kdkj laiUu izkf/kdkfj;ksa dh ‘kfDr dk iz;ksx djrs gq, le;≤ ij tkjh vkns’k ds izfrdwy u gksaA\

       ¼2½ Xokfy;j U;k;ihB }kjk v:.k eaxy rFkk vU; fo- e-iz- jkT; rFkk vU; fjV ;kfpdk dz- 1224@2005 esa fy;k x;k bl vk’; dk er fd jkT; izkf/kdkjh vuqKfIr iznku djus ds laca/k esa vuqKkiu izkf/kdkjh dks 1959 ds vf/kfu;e rFkk 1962 ds fu;eksa esa mudks micaf/kr foosdkf/kdkj dh ‘kfDr dk iz;ksx djus ds fy;s vuqns’k tkjh djus ds fy;s l{ke gS ;g fof/k ds vuqlkj rFkk lgh gSA

       ¼3½ tgk¡ rd fjV ;kfpdk dz- 838@2000 ¼ft;kmn~nhu rFkk vU; fo- e-iz- jkT; rFkk vU;½] esa fo}ku ,dy U;k;k/kh’k ds fu.kZ; dk laca/k gS] fo}ku ,dy U;k;k/kh’k }kjk fjV ;kfpdk dz- 836] 838 rFkk 839 lu~ 2000 esa ikfjr foLr`r ,d&gh vkns’k fnukad 19-7-2000 }kjk mi;qZDr fu.kZ; esa] 1959 ds vf/kfu;e rFkk 1962 ds fu;eksa ds varxZr vuqKkiu izkf/kdkjh esa fufgr foosdkf/kdkj dh ‘kfDr ds fo”k; esa foospuk ugha dh xbZ gSA ge iwoZ esa leqfDr ns pqds gS fd izdj.k ds rF;ksa esa] fo}ku U;k;k/kh’k us lgh gh leqfDr nh gS fd lR;kiu ds laca/k esa fof’k”V ifji= fd O;fDr fof/kekU; rFkk mldh vuqKfIr /kkj.k djrk gS ;g jkT; izkf/kdkfj;ksa dh l{kerk ds Hkhrj ugha FkkA blfy,] mi;qZDr fu.kZ; fof/k ds vuqlkj gSA fjV ;kfpdk dz- 8715@2011 ¼eqYyk lCchj gqlSu fo- ez-iz- jkT; rFkk ,d vU;½] esa ikfjr vkns’k eas] U;k;ky; us jkT; ljdkj }kjk ifji= tkjh djus dh ‘kfDr rFkk 1959 ds vf/kfu;e vkSj 1962 ds fu;eksa ds v/khu vuqKkiu izkf/kdkjh ds foosdkf/kdkj ds fo”k; esa foospuk ugha dh xbZ gS blfy,] mi;qZDr vkns’k fof/k ds vuqlkj ugha gSA leku :i ls fjV ;kfpdk dz- 6265@2006 ¼lqjsanz dqekj ;kno rFkk ,d vU; fo- e-iz- jkT; rFkk vU;½] esa 1959 ds vf/kfu;e rFkk 1962 ds fu;eksa ds v/khu vuqKkiu izkf/kdkjh dks fn, x, foosdkf/kdkj dks foosfpr ugha fd;k x;k gSA U;k;ky; ds le{k] ftyk eftLVªsV }kjk ikfjr vkns’k bl dkj.k vk{ksfir fd;k x;k fd dkjrwl fodz; djrs le; O;fDr dks [kkyh dkjrwl tek djuk gksrs gSA mi;qZDr fu.kZ; esa] vuqKkiu izkf/kdkjh dks fn, x, foosdkf/kdkj ij fopkj ugha fd;k x;k gSA fjV ;kfpdk dz- 1224@2005 esa Xokfy;j U;k;ihB }kjk O;Dr dh xbZ jk;] ftldh fjV vihy dz- 561@2007 esa iqf”V dh xbZ gS] gekjs }kjk lkjoku iz’u dz- 1 ds mRrj esa O;fDr dh xbZ jk; ds vkuq:I; gksus dh lhek rd lgh gSA blds vfrfjDr gekjk ekuuk gS fd U;k;ky; jkT; izkf/kdkfj;ksa ;k vuqKkiu izkf/kdkfj;ksa }kjk tkjh fd, x, vuqns’kksa ij lkjoku iz’u dz- 1 ds mRrj ds vuqlkj fopkj djuk gksxkA ¼2009½ 3 ,l lh lh 157 rFkk , vkb vkj 1974 ,l lh 1445 fufnZ”VA

       U;k- ukxw &&

       ¼3½ vk;q/k vf/kfu;e] 1959 && /kkjk 17¼1½ && vuqKfIr uohdj.k dh ‘krsZa && vuqKkiu izkf/kdkjh }kjk tks iwoZ ls fofgr gS muds flok; ifjofrZr dh tk ldrh gSa && jkT; ljdkj }kjk tkjh vf/klwpuk fnukad 16-7-2010 && dfri; vk;q/k] xksyk&ck:n rFkk vuqKfIr ds uohdj.k ds fy;s dfri; ‘krsZa fofgr dh xbZa && vuqKKiu izkf/kdkjh }kjk ,slh ‘krsZa fofgr dh tk ldrh gSA

       vfHkfu/kkZfjr % /kkjk 17¼1½ ds izHkko ls vuqKkiu izkf/kdkjh dks vk;q/k rFkk xksyk&ck:n dh fdLe rFkk ek=k ds laca/k esa ‘krsZa fofgr djus dk vf/kdkj gSA bl izdkj] tc Hkh vk;q/k ;k xksyk&ck:n j[kus ;k fodz; djus dh vuqKfIr tkjh dh tkrh gS vuqKkiu izkf/kdkjh vk;q/k rFkk xksyk&ck:n dh fdLe rFkk ek=k mica/kfr dj ldrk gS] tks ladsr djrk gS fd vk{ksfir vf/klwpuk fnukad 16-7-2010 }kjk vk;q/kksa rFkk xksyk&ck:n dh dfri; la[;kad fofgr djrs gq, vuqKfIr ds uohdj.k ds fy;s iqjksHkkO; ‘krZ fofgr dj izfrca/k yxk;k gS ;g vuqKkiu izkf/kdkjh }kjk cgqr vPNh rjg fofgr fd;k tk ldrk gSA

       tc rkdwu vk;q/k vf/kfu;e] 1959 dh /kkjk 17¼1½ esa vuqKkiu izkf/kdkjh dks vuqKfIr dh fy;s l’kDr djrk gS rFkk tc iz:u 12 rFkk 13 ds dkyWe 4 rFkk 5 ds v/khu vk;q/kksa rFkk xksyk&ck:n fofufnZ”V ek=k,¡ fofgr ugha gS] jkT; ljdkj dks vk;q/kksa rFkk xksyk&ck:n dk fuf’pr dksVk fofgr dj vuqKfIr iznku djus ;k bUdkj djus ds fy;s iqjksHkkO; ‘krsZa fofgr djus dh ‘kfDr gSA\

       U;k- ikWy &&

       ¼4½ vk;q/k vf/kfu;e] 1959 & /kkjk 13] 14] 15 rFkk 17 && Hkkjr dk lafo/kku && vuq- 162 && vuqKkiu izkf/kdkjh && dh ‘kfDr;k¡ && vk;q/k vuqKfIr tkjh djus] ifjofrZr djus ;k uohdj.k ds fy;s iz’kkldh; vuqns’k ;k ‘krsZa tkjh djus dh ‘kfDr gS && tc rd fd mi;qZDr ‘krsZa vf/kfu;e ;k fu;eksa ds izfrdwy u gksa && /kkjk 17 ds mica/k vuqKfIr ds uohdj.k ij fopkj ugha djrsA ¼iSjk 36 ls 41

       ¼5½ vk;q/k vf/kfu;e] 1959 & /kkjk 13] 14] 15] 43 rFkk 44 && Hkkjr dk lafo/kku && vuq- 246] 162 rFkk 73 vuqlwph 7 lwph 1 && vuqKfIr dk uohdj.k && fu;e cukus dh ‘kfDr && dsanz ljdkj esa fufgr gS && jkT; ljdkj dks iz’kkldh; vuqns’k tkjh djus dh ‘kfDr gS ftl ij bls dkuwu cukus dh ‘kfDr gS && dsoy fd dsazn ljdkj us fu;e ugha cuk;k gS && ;g jkT; ljdkj dks fu;e cukus ;k iz’kkldh; vuqns’k tkjh djus dk izkf/kdkjh ugha nsxkA

       vfHkfu/kkZfjr % lafo/kku] vk;q/k vf/kfu;e ds mi;qZDr mica/kksa rFkk fo”k; ij fu.kZ;ksa ds vkyksd esa] eSa O;Dr dh xbZ jk; fd vuqKkiu izkf/kdkjh iz’kkldh; vuqns’k tkjh djus ds fy;s l{ke gS tc rd fd dfFkr vuqns’k vf/kfu;e rFkk fu;eksa ds izfrdwy u gksa ls fouezrk ds lkFk vlger gw¡A iqujko`fRr dh dher ij] esjh jk; esa] {ks= tks iw.kZr;k la?k lwph esa izfof”V ds v/khu vf/kd`r rFkk O;kIr gS] ml ij dsanz ljdkj@laln dks dkuwu cukus dh ,dkdh ‘kfDr gS] jkT; ljdkj iz’kkldh; vuqns’k tkjh ugha dj ldrhA vuqKkiu izkf/kdkjh }kjk dsoy 1959 ds vf/kfu;e dh /kkjk 13 ls 15 rd ds v/khu mlesa fufgr~@iznRr foosdkf/kdkj ds fofu;eu ds fy;s vuqns’k tkjh fd;k tk ldrk gSA ¼iSjk 43 rFkk 42

       vuqKkiu izkf/kdkjh 1959 ds vf/kfu;e dh /kkjk 13 rFkk 14 ds vuqlkj blesa fufgr vius foosdkf/kdkj dk iz;ksx dj ,d lhfer lhek ds Hkhrj iz’kkldh; vuqns’k@uhfr tkjh dj ldrk gSA nwljs ‘kCnksa esa vuqn’sk 1959 ds vf/kfu;e dh lhek ds Hkhrj foosdkf/kdkj ds fofu;eu ds fy;s tkjh fd, tk ldrs gSA esjh jk; esa] mi;qZDr ds ijs iz’kkldh; vuqns’k tkjh ugha fd, tk ldrs D;ksafd ;g laln ds vf/kdkj {ks= esa gS rFkk bl ij dkuwu cukus ;k iz’kkldh; vuqns’k tkjh djus dh dsanz ljdkj@laln dh ,dkdh ‘kfDr gSA bl izdkj] vf/kfu;e dh /kkjk 13 rFkk 14 ds v/khu vuqKkiu izkf/kdkjh dks iznku dh xbZ ‘kfDr ds vuqlkj foosdkf/kdkj ds fofu;eu ds fy;s ;fn iz’kkldh; vuqns’k tkjh fd, tkrs gS rc dksbZ voS/krk ugha gksxhA 1983 ts ,y ts 572] ¼2009½ 4 ,l lh lh 94] ¼1990½ 4 ,l lh lh 557] ¼1991½ 3 ,l lh lh 239 rFkk , vkb vkj 1974 ,l lh 1445 fufnZ”VA